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59th Congress, \ Q1?Ar A rp-r, f Document 

SdSmion. ) SENATE. j No. 135. 

MESSAGE 

FROM 

THE PRESIDENT OF THE 
UNITED STATES | 

RELATIVE TO HIS RECENT VISIT TO 
THE ISLAND OF PORTO RICO, 

TRANSMITTING 

THE REPORT OF 
THE GOVERNOR OF PORTO RICO. 



DECEMBER 11, 1906.— READ, REFERRED TO THE COMMITTEE 

ON THE PACIFIC ISLANDS AND PORTO HICO, AND 

ORDERED TO BE PRINTED WITH 

ILLUSTRATIONS. 



w 



WASHINGTON: 

GOVERNMENT PRINTING OFFICE. 
1906. 



59ra Congress, j SENATE { ^^ 

"2d Session. J \ No. 135. 



MESSAGE 



/VJ 



THE PRESIDENT OF THE 
UNITED STATES 

RELATIVE TO HIS RECENT VISIT TO 
THE ISLAND OF PORTO RICO, 

TRANSMITTING 



THE REPORT OF 
THE GOVERNOR OF PORTO RICO. 



DECEMBER 11, 1906— READ, REFERRED TO THE COMMITTEE 

ON THE PACIFIC ISLANDS AND PORTO RICO, AND 

ORDERED TO BE PRINTED WITH 

ILLUSTRATIONS. 



W 



WASHINGTON: 

GOVERNMENT PRINTING OFFICE. 

1906. 



V 






OV 4 1910 



A 



^ 



V 



V 



/ 



- 



MESSAGE OF THE PRESIDENT. 



To the Senate and Rouse of Representatives : 

On November 21 I visited the island of Porto Rico, landing at 
Ponce, crossing by the old Spanish road by Cayey to San Juan, and 
returning next morning over the new American road from Arecibo 
to Ponce. The scenery was wonderfully beautiful, especially among 
the mountains of the interior, which constitute a veritable tropic 
Switzerland. I could not embark at San Juan, because the harbor 
has not been dredged out and can not receive an American battle 
ship. I do not think this fact creditable to us as a nation, and I 
earnestly hope that immediate provision will be made for dredging 
San Juan Harbor. 

I doubt whether our people as a whole realize the beauty and fer- 
tility of Porto Rico and the progress that has been made under its 
admirable government. We have just cause for pride in the char- 
acter of our representatives who have administered the tropic islands 
which came under our flag as a result of the war with Spain, and 
of no one of them is this more true than of Porto Rico. It would be 
impossible to wish a more faithful, a more efficient, and a more dis- 
interested public service than that now being rendered in the island 
of Porto Rico by those in control of the insular government. 

I stopped at a dozen towns, all told, and one of the notable features 
in every town Avas the gathering of the school children. The work 
that has been done in Porto Rico for education has been noteworthy. 
The main emphasis, as is eminently wise and proper, has been put 
upon primary education; but in addition to this there is a normal 
school, an agricultural school, three industrial, and three high schools. 
Every effort is being made to secure not only the benefits of elemen- 
tary education to all the Porto Ricans of the next generation, but also, 
as far as means will permit, to train them so that the industrial, agri- 
cultural, and commercial opportunities of the island can be utilized 
to the best possible advantage. It was evident at a glance that the 
teachers, both Americans and native Porto Ricans, were devoted to 
their work, took the greatest pride in it, and were endeavoring to 
train their pupils, not only in mind, but in what counts for far 
more than mind in citizenship — that is, in character. 



4 PORTO RICH). 

I was very much struck by the excellent character both of the insu- 
lar police and of the Porto Rican regiment. The}' are both of them 
bodies that reflect credit upon the American administration of the 
island. The insular police are under the local Porto Rican govern- 
ment. The Porto Rican regiment of troops must be appropriated 
for by the Congress. I earnestly hope that this body will be kept 
permanent. There should certainly be troops in the island, and it is 
wise that these troops should be themselves native Porto Ricans. 
It would be from every standpoint a mistake not to perpetuate this 
regiment. 

In traversing the island even the most cursory survey leaves the 
beholder struck with the evident rapid growth in the culture both of 
the sugar cane and tobacco. The fruit industry is also growing. 
Last year was the most prosperous year that the island has ever 
known, before or since the American occupation. The total of exports 
and imports of the island was forty-five millions of dollars, as 
against eighteen millions in 1901. This is the largest in the island's 
history. Prior to the American occupation the greatest trade for any 
one year was that of 1898, when it reached nearly twenty-three mil- 
lions of dollars. Last year, therefore, there was double the trade 
that there was in the most prosperous year under the Spanish regime. 
There were 210,273 tons of sugar exported last year, of the value of 
$14,186,319, $3,555,163 of tobacco, and 28,290,322 pounds of coffee, of 
the value of $3,481,102. Unfortunately, what used to be Porto Rico's 
prime crop, coffee, has not shared this prosperity. It has never 
recovered from the disaster of the hurricane, and, moreover, the benefit 
of throwing open our market to it has not compensated for the loss 
inflicted by the closing of the markets to it abroad. I call your atten- 
tion to the accompanying memorial on this subject of the board of 
trade of San Juan, and I earnestly hope that some measure will be 
taken for the benefit of the excellent and high-grade Porto Rican 
coffee. 

In addition to delegations from the board of trade and chamber of 
commerce of San Juan, I also received delegations from the Porto 
Rican Federation of Labor and from the Coffee Growers' Association. 

There is a matter to which I wish to call your special attention, 
and that is the desirability of conferring full American citizenship 
upon the people of Porto Rico. I most earnestly hope that this will 
be done. I can not see how any harm can possibly result from it, 
and it seems to me a matter of right and justice to the people of- Porto 
Rico. They are loyal, they are glad to be under our flag, they are 
making rapid progress along the path of orderly liberty. Surely 
we should show our appreciation of them, our pride in what they have 
done, and our pleasure in extending recognition for what has thus 
been done by granting them full American citizenship. 



PORTO RICO. 



Under the wise administration of the present governor and council, 
marked progress has been made in the difficult matter of granting 
to the people of the island the largest measure of self-government 
that can with safety be given at the present time. <lt would have 
been a very serious mistake to have gone any faster than we have 
already gone in this direction. The Porto Eicans have complete 
and absolute autonomy in all their municipal governments, the only 
power over them possessed by the insular government being that 
of removing corrupt or incompetent municipal officials. This power 
has never been exercised save on the clearest proof of corruption or 
of incompetence such as to jeopardize the interests of the people of 
the island ; and under such circumstances it has been fearlessly used 
to the immense benefit of the people. It is not a power with which 
it would be safe, for the sake of the island itself, to dispense at 
present. The lower house is absolutely elective, while the upper 
house is appointive. This scheme is working well; no injustice of 
any kind results from it, and great benefit to the island, and it should 
certainly not be changed at this time. The machinery of the elections 
is administered entirely by the Porto Eican people themselves, the 
governor and council keeping only such supervision as is necessary 
in order to insure an orderly electionJ^Any protest as to electoral 
frauds is settled in the courts. Here again it would not be safe to 
make any change in the present system. The elections this year 
were absolutely orderly, unaccompanied by any disturbance; and 
no protest has been' made against the management of the elections, 
although three contests are threatened where the majorities were 
very small and error was claimed, the contests, of course, to be set- 
tled in the courts. In short, the governor and council are cooperating 
with all of the most enlightened and most patriotic of the people 
of Porto Eico in educating the citizens of the island in the principles 
of orderly liberty. They are providing a government based upon 
each citizen's self-respect and the mutual respect of all citizens; 
that is, based upon a rigid observance of the principles of justice and 
honesty. It has not been easy to instill into the minds of people 
unaccustomed to the exercise of freedom the two basic principles 
of our American system — the principle that the majority must rule 
and the principle that the minority has rights which must not be 
disregarded or trampled upon. Yet real progress has been made 
in having these principles accepted as elementary, as the foundations 
of successful self-government. 

I transmit herewith the report of the governor of Porto Eico. sent 
to the President through the Secretary of State. 

All the insular governments should be placed in one bureau, either 
in the Department of War or the Department of State. It is a 
mistake not so to arrange our handling of these islands at Wash- 



6 PORTO RICO. 

ington as to be able to take advantage of the experience gained in 
one, when dealing with the problems that from time to time arise 
in another. 

In conclusion let me express my admiration for the work done by 
the Congress when it enacted the law under which the island is now 
being administered. After seeing the island personally, and after 
five years' experience in connection with its administration, it is but 
fair to those who devised this law to say that it would be well- 
nigh impossible to have devised any other which in the actual work- 
ing would have accomplished better results. 

Theodore Roosevelt. 

The White House, December 11, 1906. 



PETITIONS TO THE PRESIDENT. 



To Bon. Theodore Roosevelt, President of the United States of 

America. 

Sir: The undersigned committee of the Coffee Planters' Associa- 
tion of the District of Mayaguez, duly authorized to present to you 
this petition, have the honor to welcome you to the shores of this 
island and to express their hope that your visit may bring to them 
advantages of everlasting recollection. 

Lights of liberty came to this country from the great and mag- 
nanimous nation by you represented in the way of wise and demo- 
cratic laws; but all material betterment has been denied to the main 
product of this soil — to coffee — which is the principal source of our 
prosperity. 

The causes of the great distress now affecting the coffee planters 
must be traced down to the time of the American occupation and 
the change of sovereignty, which unjustly deprived us of our old 
coffee markets without opening new ones similar to those then lost, 
the result being that our product has now to compete at a disad- 
vantage with those of other countries in unknown markets where the 
monopoly caused by the trusts makes the fight almost impossible. 

The free trade granted us did not in the least benefit our coffee 
industry, for it was also shipped to the ports of the Union free of 
duty prior to the American occupation. And in it were Italy, France 
Germany, and Cuba, our sister colony, and not the United States 
(the best market for our fine products), because in these countries 
our coffee, on account of the treaties entered into by Spain with them, 
did obtain very high prices. 

The terrible hurricane which visited us in 1899 desolated a large 
number of our plantations; the exchange of " provincial " money for 
American currency, which greatly diminished our wealth; the just 
raise of salary claimed by and awarded to the laboring class, and the 
old debts previously contracted by our farmers on reliance of the 
prosperity generally enjoyed, have resulted in the present ruinous 
condition of the coffee industry to such an extent that it will wholly 
destroy it unless the American people, through their Congress, pro- 
vide for the remedy so badly needed in order that such state of affairs 
may cease. 

Prior to the American occupation the low tariffs then in force 
allowed us to sell our product in the European markets, but to-day 
the Dingley tariff has done away with this advantage, causing a great 
injury to our general welfare. 

Furthermore, the Kepublic of Cuba has derived a greater benefit 
than our own country, as it can export its coffee to the United States 
on the same conditions as Porto Rico's, and its sugar has been 



8 PORTO RICO. 

granted a protection in spite of its being a foreign country, while 
Porto Rico, though a part of the United States, has been unable to 
secure any protection for its most famous and important product. 

The advantages, sir, that Porto Rico has gained in the political 
field will be entirely useless unless it is able to obtain some relief for 
its financial distress, for man's struggle for good government is the 
natural result of his legitimate desire for the betterment of his 
economical condition. 

This committee firmly believes, and with it those whose wishes it 
conveys to you, that the means to accomplish such good results are 
the following: 

(a) A protective tariff for Porto Rico coffee, imposing an import 
duty of 5 cents upon each pound of foreign coffee brought into the 
United States and Porto Rico, and an import primage of 5 cents 
upon each pound of Porto Rico coffee shipped to the United States. 

(b) The including of a protective clause for Porto Rico coffee 
in the import tariffs of Spain, Italy, Germany, France, and Cuba, 
allowing in just reciprocity that some of the products from those 
countries which are not generally raised or manufactured in Ameri- 
can soil may come into the United States on the same favorable con- 
ditions; and in order to accomplish this end, the amendment of the 
commercial treaties now in force and the inserting of some provi- 
sion in those newly entered into, between the United States and the 
countries above referred to. 

Such are, honorable sir, the evils affecting our coffee industry, 
and such are the adequate remedies which we propose in order to 
relieve it from the imminent danger that menaces it. We heartily 
hope that, as a good friend of the Porto Rican people, you will plead 
before Congress for our welfare in the annual message which, in 
compliance with the constitutional provision thereon, you will send 
to that body at the opening of its coming session. 

Respectfully submitted. 

R. Gomez Cabot. 
Salvador Amill Negroni. 

supplementary proposition. 

If either of these two remedies can not be satisfactorily applied, 
there is still, honorable sir, a third proposition of a similar nature, 
which is very effective and practical, namely : 

(c) To impose a duty of 5 cents on each pound of high-grade 
coffee shipped into the United States from foreign countries. 

This measure would only affect the interests of the rich consumers 
of the States, and would not prejudice the nation at large, because 
the wealthy class would as readily pay 25 cents as 20 cents, for a 
pound of good coffee. And being our coffee, as it is of the finest 
quality, it would certainly be protected by this measure. 
Respectfully submitted. 

R. Gomez. 

Salvador Amill Negroni. 
Hon. Theodore Roosevelt, 

President of the United States of America. 



PORTO RICO. 9 

To His Excellency Honorable Theodore Roosevelt, 

President of the United States of America. 

Sir: The terrible cyclone that swept over this island in 1899 de- 
stroyed the whole of our crops. 

The main force of the hurricane bore on the mountainous part of 
the island where coffee is raised. Sugar, tobacco, and the minor 
products are planted from year to year, but coffee is produced in trees 
which require from five to six years to bear fruit. 

The event which caused Porto Rico to pass into the folds of the 
American flag soon came to the rescue, giving free admission to our 
sugars, tobacco, and all other products, and our country is fairly 
prospering to-day under the benefits of free trade with the United 
States. Our coffees being of a superior quality, they are highly ap- 
preciated in the European markets, where thev sold at a much higher 
price than all other coffees from America. But the fact that Porto 
Rico, like the rest of the United States, imposes to-day the Dingley 
tariff on all European products, has caused the nations of Europe 
to retaliate on Porto Rico coffees by imposing heavy duties on them 
so that the high prices paid for Porto Rican coffee does not benefit 
the country, but remain in the European treasuries, and in "shipping 
them to the United States they have to compete with the lower grades 
of coffee imported there free of duty from nearly all the American 
countries. 

Such a condition of affairs has had its natural effect; the planta- 
tions destroyed by the hurricane have not been rebuilt; many that 
survived the terrible havoc have been abandoned, and our coffee crop, 
which in 1896 brought $16,000,000 to the country, with nearly $10,- 
000,000 profit, has been reduced to $6,000,000, with practically no 
profit at all for the planters. 

We are improving our methods of cultivating coffee in order to 
produce it cheaper. Our resident commissioner at Washington has 
introduced a bill in the House of Representatives in order to obtain 
protection to our main staple. Our insular legislature has voted 
$12,500 evei 7 year to keep an agency in New York to advertise and 
make known the superiority of our coffee over all other American 
' coffee in the market. 

Your Excellency himself has given our work in this direction the 
greatest impulse that we could wish for by declaring our coffee to 
be of the best quality and ordering it to be exclusivelv used at the 
White House. 

It is for this, as well as for the many other proofs of consideration 
and friendly feeling to Porto Rico, that we have decided to appear 
before you to-day, begging of you to help us in saving from total 
rum Porto Rican coffee, .which is our main staple— the one that more 
directly brings a loaf of bread to the home of the poor man in Porto 
Rico. 

(Signed by many banking institutions, commercial organizations, 
business firms, and individuals engaged in business pursuits in Porto 
Rico. ) 



SIXTH ANNUAL REPORT 

OP THE 

GOVERNOR OF PORTO RICO. 



Government House, Porto Rico, 

San Juan, July i, 1906. 

Sir : I have the honor to transmit herewith the sixth annual report 
id the governor of Porto Rico, covering the period from July 1, 1905, 
to June 30, 1906. 

During the past year there has been an encouraging improvement 
in the economic condition of the country, attended by considerable 
activity in the building of railways and in the erection of new sugar 
centrals and tobacco factories. The production of sugar and tobacco 
increased greatly, and coffee, the principal export of the island during 
the Spanish regime, shows a slight advance. The addition to the 
wealth of the island and the greater per capita circulation are mainly 
due to these three crops, of which a more detailed description will be 
found in another portion of this report. 

In administrative affairs there has also been an improvement. The 
session of the legislature during the winter of 1906 was productive of 
important results, and gave greater evidence of good will between the 
two houses than in any previous year. The work of the assembly at 
this session deserves the highest praise and demonstrates the encour- 
aging progress that has been made during the past few years in this 
branch of governmental work. The most important laws passed will 
be dealt with more in detail in connection with the subjects to which 
they especially refer, and it will therefore be sufficient in this general 
review to mention them merely by name. The most important, acts 
of the legislative assembly provide for the issuance of government 
bonds to the amount of $1,000,000, to extend the system of insular 
roads; for a more just and equitable method of conducting elections; 
for a simpler means of settling election contests ; for the continuance 
and extension of the work inaugurated by the second legislative 
assembly to suppress uncinariasis, or tropical anaemia ; for the creation 
of a commission to compile, codify, and revise the laws of Porto Rico ; 
for a more liberal system of municipal government; and for the 
establishment of an additional court in the district of San Juan, with 
jurisdiction over civil cases. The members of the assembly, individu- 
ally and collectively, labored faithfully and zealously to solve the 
problems presented to them for the best interests of the island. Their 
work will compare favorably with that of any State or Territorial 
legislature on the continent of the United States. 

Interest is already shown in the elections which take place next 
November, and the summer promises to be an active one politically. 
The election law provides for the registration of prospective voters 

11 



12 PORTO RICO. 

on every Saturday during the months of May, June, July, and 
August. Thus far the registration days have been free from dis- 
order of any kind, and the lists will undoubtedly be much more exact 
than ever before. In 1904 the number registered amounted to over 
225,000, while approximately but 143,000 votes were cast. It is 
probable that the actual number of qualified voters in the island is 
in the neighborhood of 200,000. At the close of the election period 
two years ago prompt and vigorous prosecutions were instituted 
against those who violated the law, and although in several instances 
the juries showed a disposition to regard such crimes as of small 
importance, a large percentage of convictions was secured. Of the 
141 prosecutions before the district courts of the island, convictions 
were had in 57 cases; the jury disagreed in 41 cases and acquitted 43 
defendants. The sentences usualty carried terms in jail, although 
in a few instances fines were imposed. A few days prior to the 
elections in 1904 I gave public warning that I should be most reluc- 
tant to grant pardons for crimes of this character. In view of this 
warning, I have granted no pardons in election cases, and I feel 
that this attitude of the government will result in inspiring a higher 
opinion of the sanctity of the ballot. ' 

The legislature, in its session of 1905. extended the terms of 
municipal judges, secretaries, and marshals of district courts to four 
years, and the municipal law passed last winter provides that mayors, 
councilmen, and other elective municipal officers shall be elected for 
the term of four years instead of two years, as heretofore. At the 
present time, of all the elective officers of the island, only the resident 
commissioner to the United States and the members of the house of 
delegates are elected biennially. The terms of these officers are fixed 
by the organic act of April 12, 1900. It is, I believe, the universal 
desire of the people that elections be held every four years instead of 
every two, as at present. The elections involve a considerable 
expense to the island, and are productive of much undesirable excite- 
ment. For these reasons I renew the recommendation made in my 
report of last year, that the organic act be amended to extend the 
terms of office of members of the house of delegates to four years. 

FINANCES. 

The following condensed statement shows, in brief, the condition 
of the finances for the fiscal year 1905-6. A more detailed statement 
will be found in the auditor's report in the appendix marked " Ex- 
hibit D:" 

Receipts and expenditures from July 1, 1905, to June 30, 1906. 

Receipts. 

insular revenues. 

Custom receipts $71tf, 111. 20 

Internal-revenue receipts 2,444,719.51 

Miscellaneous receipts from sundry sources 197, 071. 91 

Total insular revenues deposited 3, 357, 902. 62 

Repayments 177,200.00 

Transfers to insular revenues from trust funds 10,099.41 

Total deposits and repayments of insular revenues $3,545,202.03 



POETO RICO. 13 

TRUST FUNDS. 

Trust funds deposited $341,648.49 

Repayments to trust funds 15,976.65 

Total trust-fund deposits and repayments 357,625. 14 

Transfers from insular revenues 14, 987. 53 

Total trust-fund deposits, repayments, and transfers . $372, 612. 67 

Total deposits, transfers, and repayments from July 1, 

1905, to June 30, 1906 3,917,814.70 

Balance on hand at close of business June 30, 1905 758, 231. 35 

Total receipts to be accounted for 4,676,046.05 

Expenditures. 

amounts advanced to disbursing officers from insular revenues. 

Total amount advanced for legislative expenditures $58, 681.41 

Total amount advanced for executive expenditures 2,091,928.36 

Total amount advanced for judicial expenditures 302, 946. 47 

Total amount advanced from insular revenues 2,453,556.24 

Payment of sundry claims on settlements J 1,088,237.27 

Transfers from insular revenues to trust funds 14,987.53 

Total amount paid from insular revenues 3, 556, 781. 04 

AMOUNTS ADVANCED TO DISBURSING OFFICERS FROM TRUST FUNDS. 

Treasury Department .= 1. $1,846.67 

Department of the Interior 92,826.74 

Advanced to University of Porto Rico 17,588.74 

Department of education 64,433.36 

Department of health, charities, and correction ' 325. 00 

Advance to municipality of Aguas Buenas 106. 54 

Total amount advanced from trust funds 177, 127. 05 

Payment of sundry claims on settlements 308, 056. 81 

Transfers to insular revenues 15,774.74 

Total amount paid from trust funds $500, 958. 60 

Total expenditures, July 1, 1905, to June 30, 1906 4, 057, 739. 64 

Total receipts to be accounted for 4,676,046.05 

Total expenditures 4,057,' 739^ 64 

Balance on hand June 30, 1906 618,306.41 

Made up as follows : 

Insular revenues 405,215.18 

Trust funds 213,091.23 

618, 306. 41 

Decrease in balance of insular revenues : 

Balance of insular revenues, June 30, 1905 416, 794. 19 

Balance of insular revenues, June 30, 1906 405, 2151 18 

Decrease in balance of insular revenues during the fiscal 
year 1905-6 11,579.01 

Decrease in balance of trust funds : 

Balance of trust funds, June 30, 1905 341, 437. 16 

Balance of trust funds, June 30, 1906 213J 091. 23 

Decrease in balance of trust funds during the fiscal year 
1905-6 128, 345. 93 



14 



PORTO RICO. 



During the past fiscal year there has been a considerable increase 
both in the receipts and in the expenses of the government. The 
customs collections for the past year exceeded those for the preced- 
ing year by some $58,000, while the receipts from sundry sources are 
approximately $39,000 more than they were for the fiscal year 1904-5. 
The internal-revenue receipts show a loss of some $14,000. This is, 
however, entirely due to the abnormally large payments in June, 
1905, by producers desiring to lay in a large stock of goods before the 
increased rate of taxes went into effect on July 1, of that year. The 
decrease of $11,579.01 in insular revenues shown in the above state- 
ment is more than offset by the increase in the amounts loaned munici- 
palities and municipal school boards, as shown by the treasurer's 
report marked " Exhibit C." Taking into consideration these 
amounts, the actual assets of the insular treasury at the close of the 
fiscal year 1905-6 amounted to $528,022.48 as compared with 
$500,004.23 on June 30, 1905, an increase of $27,418.25. The increase 
in expenditures is due chiefly to the large amount appropriated for 
the extension of the department of health, charities, and correction, 
for the increase in the number of police, and for certain permanent 
improvements such as the construction of a jail at Arecibo, the en- 
largement of the penitentiary, and the completion of insular roads. 
There has been a decrease in the running expenses of the offices of 
the governor, the attorney-general, the treasurer, the auditor, and 
the commissioner of education. The judicial expenditures have de- 
creased by $1,649, while under the head of legislative expenditures, 
there has been a decrease of some $50,000. This, however, is explained 
by the fact that in the fiscal year just closed but $5,000 was expended 
for election purposes, as compared with $53,000 in the prior year. 

The figures quoted under the head of insular revenues for the past 
year, amounting to $3,355,902.62, do not correctly state the actual 
amount available for appropriation by the central government, inas- 
much as the total property tax collected on the island is deposited 
under the head of internal-revenue receipts, and eighty-five one hun- 
dredths of this tax of 1 per cent is returned to the municipalities for 
their use. This amount, so refunded, aggregated during the fiscal 
year 1905-6, $823,097.66. 

COMMERCE. 

The following tables will be of interest, as showing the trade con- 
ditions during the past six years: 

Exports to the United States. 



Fruits and nuts 

Hides pounds. . 

Molasses gallons. . 

Sugar a tons. . 

Leaf tobacco pounds . . 

Cigars M.. 

Straw hats 

Coffee pounds. . 

All other articles, including 
foreign merchandise 



Total. 



Fiscal year ended June 30 — 



1901. 



Quantity. Value 



357, 606 
1,231,654 

68, 601 
556,932 

11,013 



29, 505 



$105, 277 
38,976 
254, 155 
4, 695, 104 
121,011 
296,021 
38, 197 
4,305 

28, 242 



5,581,288 



1902. 



Quantity. Value. 



654, 322 

1,613,915 

91,909 

665, 889 

70,053 



227,560 



870,871 

67, 888 

322,636 

5,890,089 

112,289 

1,543,253 

176,412 

27,031 

168, 297 



Quantity. Value 



697, 698 

2, 773, 914 

113,072 

770, 224 

67, 243 



6,314,686 



8, 378, 766 



$287, 583 

85, 916 

376, 757 

7,467,579 

135,080 

1,746,483 

40,198 

718, 531 

192,068 



11,051.195 



a Commercial ton, 2,000 pounds. 



POKTO RICO. 

Exports to the United States — Continued. 



15 



Fruits and nuts 

Hides pounds.. 

Molasses, gallons. 

Sugar a tons. 

Leaf tobacco pounds. 

Cigars M . 

Straw Tiats 

Coffee pounds. 

All other articles, including 
foreign merchandise 



Total. 



Fiscal year ended June 30— 



1904. 



Quantity. 



330, 388 
1,839,055 

129, 616 

2,385,498 

59, 185 



2, 415, 559 



Value. 



$426,979 

41, 244 

308, 115 

8,688,951 

200,813 

1, 454, 784 

53, 293 

279, 461 

209,006 



11, 722, 826 



1905. 



Quantity. 



668. 659 
2,843,110 

135. 660 
2,195,723 

87, 569 



1, 519, 149 



Value. 



$250,847 

82,640 

251,286 

11,925,575 

421, 652 

2, 146, 846 

89, 155 

201, 642 

263, 502 



15,633,145 



1906. 



Quantity. 



817, 156 
3,794,938 

205, 272 
1,396,533 

113, 223 



203, 455 



Value. 



$496,694 
112,665 
345, 733 
14,184,319 
476,539 
3,0,9,576 
109,054 
27,069 

320,812 



19, 142, 461 



a Commercial ton, 2,000 pounds. 

Annual average export to the United States for the five years ending June 30, 1898 ... $2 271 099 

Total exports, 1898-99 3' 093' 830 

Total exports, 1899-1900 .'_'.' 2 '991 '416 

Exports to foreign countries. 



Cattle number. 

Horses do. . . 

M ules do... 

Coffee pounds. 

H ides do . . . 

Tallow do... 

Spiri ts , distilled gallons . 

Molasses do . . . 

Brown sugar. pounds. 

Leaf tobacco do... 

Cigars M. 

Cigarettes do . . . 

Corn bushels. 

Straw hats 

Wood, and manufactures of. 
All other domestic articles . . 
All other foreign articles 



Fiscal year ended June 30 — 



1901. 



Quantity. 



12,829 

2,538 

1,605 

12, 127, 675 

332, 116 

90,952 

1,079 

1, 61C, C60 

616,956 

4,433,305 

818 

1,243 

6,110 



Total. 



Value. 



$457,983 

74, 385 

44,209 

1, 674, 460 

42,566 

4,186 

557 

341,747 

20,604 

254,516 

10, 094 

1,869 

2,986 

7,935 i 

3,097 

26,611 

34, 874 



1902. 



Quantity. Value 



13,357 

1,893 

513 

26, 678, 839 

104, 762 

185, 197 

54, 683 

1,466,217 

5,587 

1,387,084 

625 

427 

8,449 



3,002,679 



$354. 065 

49,305 

18.4S5 

3,168,631 

13, 656 

8,164 

20,588 

256,461 

213 

100. 479 

5,982 

1,818 

4,756 

755 

375 

8,605 

42,852 



4,055,190 



1903. 



Quantity. Value 



11,273 

1,475 

65 

892,453 

20, 324 

219,042 

376 

504,565 

71,624 

481,403 

721 

282 

552 



$291,600 

29,561 

1,803 

3,252,043 

2,926 

5,083 

398 

288,243 

2,543 

68,529 

7,332 

584 

416 

5,572 

260 

604 

80,387 



4,037,884 



Cattle number. 

Horses do... 

Mules do.!! 

Coffee pounds. 

Hides do... 

Tallow do... 

Spirits, distilled gallons! 

Molasses do... 

Brown sugar pounds. 

Leaf tobacco do 

Cigars M. 

Cigarettes do. . 

Corn bushels. 

Straw hats 

Wood, and manufactures of. 
All other domestic articles . . 
All other foreign articles 



Fiscal year ended June 30— 



1904. 



Quantity. Value 



Total. 



13,110 

4,022 

165 

31,914,413 

114,906 

208,325 

1,032 

1,660,975 

62,453 

719,256 

486 

205 

2,416 



$316,131 

94,916 

6,449 

3,623,796 

14,023 

7,869 

964 

313,211 

1,863 

25,293 

5,837 

339 

1,591 

8,214 

24 

15,749 

106,808 

4,543,077 



1905. 



Quantity. Value 



8,185 

2,334 

240 

15,330.590 

29,305 

224, 715 

790 

1,768,952 

5,125 

317,548 

392 

486 

35, 748 



$206, 655 

64, 836 

9,081 

1,939,367 

3,556 

10,041 

731 

324, 839 

229 

16,230 

5,205 

676 

29,456 

13, 284 

667 

96,830 

354,737 

3,076,420 



1906. 



Quantity. Value 



7,161 

743 

24 

,086,867 

23, 468 

283,755 

298 

,220.593 

10, 332 

47, 437 

356 

187 

12,933 



$150,679 

21, 649 

680 

3,454,033 

3,474 

14,307 

392 

208,117 

403 

4,068 

4,650 

345 

11,599 

7,995 

3,940 

174,263 

54, 475 

4,115,069 



16 



POKTO EICO. 

Imports from the United States. 



Breadstuffs 

Chemicals, drugs, and dyes 

Bituminous coal. 

Cotton cloths, and manufac- 
tures of 

Fibers, vegetable, and textile 
grasses, and manufactures of 

Fish 

Iron, steel, and manufactures of 

Leataer, and manufactures of. 

Oils, mineral and vegetable — 

Paper, and manufactures of. . . 

Meat and dairy products 

Rice 

Spirits, wines, and malt liquors 

Sugar, molasses, and confec- 
tionery 

Vegetables 

Wood, and manufactures of. . . 

Cars, carriages, and parts of. . . 

Candles 

Tobacco, and manufactures of 

Wool, and manufactures of... 

Books, maps, engravings, and 
etchings 

Instruments and apparatus for 
scientific purposes 

All other articles, including for- 
eign merchandise 

Total 



Fiscal year ended June 30 — 



1901. 



3955,409 
67,282 
62,673 

1,381,996 

96,047 

251,758 

619,282 

88,700 

94,662 

71,390 

921, 140 

1,374,168 

87,042 

31,902 
102,431 
222,996 
70,540 
32,511 
26,426 
8,764 

40,904 

28,377 

777, 102 



1902. 



7,413,502 



$1,040,079 
135,846 
62,793 

2,060,826 

30, 100 

395,444 

1,171,136 

234,331 

144,512 

110,222 

1,389,530 

1,803,062 

159, 117 

108,296 
231,450 
560,081 
132,002 
54,385 
98, 191 
81,056 

69,840 

81,904 

728, 447 



1903. 



10,882,653 



$1,185,313 
141,790 
162,033 

2,044,470 

47,265 

196,370 

1,434,350 

309,886 

150,625 

116,892 

1,463,121 

2,255,429 

201, 100 

136,797 
197,798 
538, 736 
135,507 

66,782 
152,536 

80,962 

76, 135 

59,523 

1,092,425 



12,245,845 



1904. 



$1,084,694 
139,996 
235,561 

1,670,005 

73,842 

154, 106 

1,013,061 

283,961 

199,534 

115,296 

1,192,016 

2,326,127 

153,897 

144,731 
128,232 
436,320 
122,503 
70,972 
90, 131 
92,957 

71,577 

44,408 

1,366,133 



1905. 



11,210,060 



$1,259,519 
173,680 
197,702 

2,109,063 

202,727 

400,731 

1,585,054 

337,083 

191,606 

170,393 

1,437,632 

2,508,724 

214,414 

188,730 
169,020 
579,747 
141,921 
84,773 
191, 198 
143,028 

65,041 

47,726 

1,574,558 



13,974,070 19,224,881 



Imports from foreign countries. 



Chemicals, drugs, and dyes 

Cotton cloth, and manufactures 
of 

Chinaware, plain and decorated. 

Fibers, vegetable, and textile 
grasses, and manufactures of. 

Fish,codfish,herring,andmack- 
erel 

Iron and steel, and manufac- 
tures of 

Leather, and manufactures of. . 

Oils 

Paper, and manufactures of 

Meat and dairy products 

Rice 

Soap 

Vegetables 

Spirits, wines, and malt liquors. 

Wood, and manufactures of 

Wool, and manufactures of 

All other articles 

Total 



Fiscal year ended June 30 — 



1901. 



$50,722 

233, 142 
19, 052 

116,854 

270,112 

104,813 

152,344 
29,506 
47,078 
72,308 

159,371 
97,436 

141,216 
60,889 
44,700 
39,562 

313,623 



1,952,728 



1902. 



$61,340 

119,475 
25,880 

123,876 

397,965 

205,966 
124,704 
82, 820 
40,621 
201,966 
90,906 

133. 116 
208,256 

96,858 
62,081 
28,010 

323. 117 



1903. 



2,326,957 



$59,350 

117,321 
21,598 

121,403 

472,601 

176,147 

105,923 

58,296 

32, 494 

201,718 

55,033 

147,253 

214,573 

84, 132 

58.297 

24,984 

261,318 



2,203,441 



1904. 



$56,374 

123,782 
12,632 

120,091 

363, 155 

92,351 

103,959 
58,243 
37,844 

221,390 
33,502 
94, 468 

192,751 
71,280 
56,028 
20,920 

300, 190 



1,958,969 



1905. 



$51,590 

100,606 
7,400 

164,661 

467,854 

285,241 
82,464 
61,503 
43,337 

204, 485 

4,637 

93, 879 

165,665 
77.776 
78,553 
13, 173 

659,365 



2,562,189 



PORTO EICO. 



17 



Imports and exports, 1901-1906. 
IMPORTS. 



From- 



Austria-Hungary 

Belgium 

Denmark 

France 

Germany 

Italy 

Netherlands 

Portugal 

Spain 

Sweden and Norway 

Switzerland 

United Kingdom 

British Honduras 

Mexico 

Nova Scotia and New Bruns- 
wick 

Canada 

West Indies: 

British 

Cuba 

Danish 

Dutch 

French 

Haiti 

Santo Domingo 

Argentina ; 

Canary Islands 

Colombia 

Ecquador 

Paraguay 

Uruguay 

Venezuela 

British East Indies 



Fiscal year ended June 30— 



$13, 245 

8,922 

12,217 

166,723 

152, 201 

19, 552 

61, 838 



808, 441 

1,884 

437 

374, 837 

12 



294, 067 



Total. 



108 

2,958 

1, 564 

14,165 

24 

79 

2,086 



1902. 



$17, 945 
6,427 
14, 949 
173, 348 
202, 040 
19, 838 
12, 243 



869, 479 



1903. 



$17, 315 

17,311 

21,063 

259, 992 

155,917 

15, 463 

7,120 

440 

793, 061 



871 
401,037 



441, 678 



1, 952, 728 



927 

15, 689 

2,249 

4,883 

511 

29 

9,066 

70, 294 

7,980 

136 



39, 796 
6,321 
9,221 



2, 326, 957 



800 
318, 839 



390,140 



5,482 
11,709 
22,417 



1904. 



$10, 251 

4,482 

16,385 

178,235 

100,160 

30, 884 

13, 579 

730 

627, 982 



4,532 
243, 768 



4,192 
400,387 



2,756 
30, 596 
12, 880 

8,271 
18 



6,055 
21,012 
16, 791 

1,611 



956 

96, 606 

1,020 

22,321 



2, 203, 441 



3,931 
3,831 
41, 591 
8,435 
468 



184, 734 
15,389 
10,502 



1,958,969 



1905. 



$4, 518 
68, 520 
24, 373 
330, 176 
105, 290 
25, 952 
24, 012 
260 
578, 931 



784 
235, 406 



12, 673 

525, 217 
1,000 

2,321 

7,967 
2,852 
5,949 



14, 153 
74,427 
36, 474 
10,042 
131 



$18, 589 

111,939 

34, 668 

345,785 

148,971 

38, 812 

48, 181 

97 

642,200 



50 

264, 112 



22,857 
575, 787 



550 

61, 529 

6,629 

1,372 



11,989 

24, 839 

31,328 

250 



65,316 

316, 748 

88, 697 



2, 562, 189 



93, 273 
20, 899 
98, 078 



2, 602, 784 



EXPORTS. 



To- 



Fiscal year ended June 30 — 



1901. 



1902. 



1903. 



1904. 



1905. 



1906. 



Austria-Hungary 

Belgium 

Denmark 

France 

Germany 

Gibraltar 

Italy 

Netherlands 

Spain 

Russia 

Sweden -and Norway 

United Kingdom 

Mexico 

Nova Scotia and New Bruns- 
wick 

Canada 

West Indies: 

British 

Cuba 

Danish 

Dutch 

French 

Haiti 

Santo Domingo 

French Guiana 

British Guiana 

Argentina 

Canary Islands 

Colombia 

Uruguay 

Venezuela 

French Africa 



$55, 979 

1,619 

18. 697 

473, 470 

140, 772 

5,441 

88,935 

1,405 

596, 023 



$342,071 

6,192 

3,818 

1,479,932 

326, 422 

4,077 

221, 135 

19, 665 

576, 496 



Total. 



3,965 
3,990 



288, 612 
53,087 

56,371 

1,110,048 

16,094 

4,916 

42,483 

503 

38,954 



17, 413 

17,982 

20 

249, 915 



$267, 533 

1,362 

17,591 

1, 294, 578 

342, 827 

12, 865 

259, 581 

17, 828 

756, 523 

18 

5,454 

4,021 



$469, 778 

7,327 

1,974 

1, 578, 536 

354, 212 

5,420 

184,333 

34, 808 

645, 998 



$102, 073 

969 

2,425 

382, 828 

47, 774 

2,864 

139, 483 



538, 430 



$278, 829 

11,723 

7,465 

630, 414 

136, 106 

8,076 

210,011 

39, 898 

813, 479 



8,236 

625 

1,534 



1,222 
41, 548 
5,009 



4,335 

134, 380 

936 



288, 065 



313,929 : 329,638 j 166,513 



62, 544 
648, 518 
22, 670 
6,044 
32,382 

J 19 
17, 472 



43, 441 

611, 199 

17,045 

6,427 

26,787 

26 

19, 518 

42,148 



38, 133 
835, 722 
9,956 
10,063 
13, 165 
555 
20, 339 
7,970 



53, 594 

1,355,123 

12,112 

19,743 

126 

876 

26, 697 



23,659 

1,582,904 

11,141 

3,439 

669 

553 

46,914 



300 
666 
334 



375 



3,002,679 ! 4,055,190 



794 

""'828' 
1,425 



4,037,884 



179 



285 



4,543,077 



1,140 
""'542' 



78 



330 



12, 118 



599 
2,618 



3,076,420 ' 4,115,069 



S. Doc. 135, 59-2- 



18 



PORTO RICO. 
Exports. 



To- 



San Juan.. 

Ponce 

Mayaguez. 
Aguadilla . 
Arecibo . . . 

Arroyo 

Humacao . 
Fajardo... 



Fiscal year ended June 30, 1906— 



United States. 



Total. 



$7, 193, 140 
4, 645, 451 
1, 152, 149 

368, 785 
1,019.051 
2, 950, 865 

725. 266 
1,087,754 



Foreign 
countries. 



19, 142, 461 



$911,922 

1,068.218 

1,109,277 

' 553, 974 

301, 642 

50,838 

35, 514 

83,684 



4,115,069 



Total. 



$8,105,062 
5, 713, 669 
2, 261, 426 

922, 759 
1,320,693 
3,001,703 

760, 780 
1,171,438 



23, 257, 530 



Imports from foreign cotmtries for the fiscal year ended June 30, 1906. 



San Juan. 

Ponce 

Mayaguez . 
Aguadilla . 

Arecibo 

Arroyo 

Humacao. 
Fajardo . . . 



$1,488,358 

789, 672 

219, 441 

17,4S8 

52, 157 

25, 135 

4,445 



Total 2, 602, 784 

Not only has there been a large increase in the three principal 
exports of the island — sugar, coffee, and tobacco — but the total trade 
of the island last year was the largest in its history. For the past four 
years the balance of trade has been in favor of the island, as the fol- 
lowing table will show : 



Fiscal year. 


Imports. 


Exports. 


Excess of 
imports. 


Excess of 
exports. 


Total ex- 
ports and 
imports. 


1901 


$9,366,230 
13, 209, 610 
14,449,286 
13, 169, 029 
16,536,259 
21, 827, 665 


$8, 583, 967 
12, 433, 956 
15,089,079 
16, 265, 903 
18, 709, 565 
23, 257, 530 


$782, 263 
775, 654 




$17, 950, 197 
25, 643, 566 
29,538,365 
29, 434, 932 
35, 245, 824 
45,085,195 


1902 




1903 


$639, 793 
3, 096, 874 
2, 173, 306 
1, 429, 865 


1904 




1905 




1906 









The decrease last year in the balance in favor of the island is due 
to the fall of about 25 per cent in the price of sugar and the rise of 
about 50 per cent in the value of the rice imported. The greatest 
trade for any one year prior to American administration was in 1896, 
when the total exports and imports reached in silver $37,952,456, or 
approximately $22,771,474 in gold. 

The following tables show the total amount of customs receipts, 
with the cost of collection, during the past six years. The tonnage 
tables show only the direct transactions with foreign ports. A vessel 
is entered but once for each voyage, even though it may touch at 
several ports in the island; consequently the total tonnage of the 
arrivals and departures for the different ports of the island would 
greatlv exceed these figures . 



CD or 




I 




I 



PORTO RICO. 



19 



Customs receipts. 



Duties 

Tonnage 

Immigrant 

Fines, penalties, and forfei 

tures 

Special service 

Storage 

Fees 

Total 

Refunds paid 

Cost of collection 

Salaries 

Rents 

Miscellaneous 

Total 



Fiscal years ending June 30 — 



1901. 



,066,062.32 

11,137.05 

1,951.00 

1,374". 56 
2,726.27 
3,417.40 
2,586.49 



1,089,255.09 

16,100.07 

.066 



899,879.24 
12,390.69 
1,928.00 

729.41 
1,550.00 
1,907.48 
3,942.37 



922,327.19 

13,131.59 

.057 



1903. 



$814,574.52 
12,806.60 
2,981.00 

1,179.31 
1,597.00 
4,042.74 
2,217.08 



839,398.25 

10,083.18 

.067 



1904. 



$695,533.13 
12,915.15 
3,190.00 

1,784.79 
1,028.42 
2,029.69 
2,371.24 



718,852.42 

8,277.10 

.079 



1905. 



$721,923.66 
11,211.18 
3,034.00 

2,098.76 
1,300.00 
2,542.10 
3,166.25 



745,275.95 

8,383.76 

.081 



1906. 




824,612.56 

19,133.96 

.076 



EXPENSES OF COLLECTION. 



66,835.91 

528.00 

4,607.23 



71,971.14 



$48,101.50 

528.00 

3,859.56 



52,489.06 



50,751.27 $47,568.49 i $51,761.13 

528.00 584.00 396.00 

4,722.28 8,647.36 7,938.93 



56, 001 . 55 56, 799. 85 .j 60, 096. 06 



$51,360.87 

660.00 

10,463.03 



62,483.90 



Receipts from all sources fiscal year ended June 30, 1906. 



Port. 



San Juan . 
Ponce 



Arroyo . 
Arecibo. 



Receipts. 



$503,467.99 

209, 867. 07 

83, 454. 84 

10, 445. 73 

8, 162. 71 



Port. 



Aguadilla . 
Fajardo.. 
Humacao . 



Total . 



Receipts. 



$5, 145. 04 
2,322.04 

1,747.14 



824, 612. 56 



Number and tonnage of sailing and steam vessels, by nationality, which entered and cleared 
at Port Rico in its trade with the United States. 

YEAR ENDED JUNE 30, 1904. 





Entered. 


Cleared. 


Nationality. 


Sailing. 


Steam. 


Sailing. 


Steam. 




Num- 
ber. 


Tonnage. 


Num- 
ber. 


Tonnage. 


Num- 
ber. 


Tonnage. 


Num- 
ber. 


Tonnage. 


American 


50 


24,397 


76 


152, 165 


47 

2 


25, 513 
385 


117 


216,389 


British 


German 










1 
3 


1,289 
4,052 


Spanish 




























Total 


50 


24,397 


76 


152, 165 


49 


25,898 


121 


221, 730 





YEAR ENDED JUNE 30, 1905. 



American 


66 


40,247 


74 


148, 273 


1 
58 1 


34,930 


117 
2 


216, 857 
3,688 


British 


Norwegian 






1 


862 
















Total 


66 


40, 247 


75 


149, 135 


58 

1 


34,930 


119 


220, 545 







YEAR ENDED JUNE 30, 1906. 








American 


Ill 


69, 490 


131 


263, 439 


91 
4 


56, 585 
941 


143 
1 

1 


280, 273 
1,633 
1,195 


British 


Belgium 










Spanish 










1 


149 
















Total 


111 


69, 490 


131 


263, 439 


96 


57, 675 


145 


283, 101 





20 



PORTO RICO. 



Number and tonnage of sailing and steam vessels, by nationality, which entered and cleared 
at Porto Rico in its trade icith foreign countries. 



YEAR ENDED JUNE 30, 1904. 





Entered. 


Cleared. 


Nationality. 


Sailing. 


Steam. 


Sailing. 


Steam. 




Num- 
ber. 


Tonnage. 


Num- 
ber. 


Tonnage. 


Num- 
ber. 


Tonnage. 


Num- 
ber. 


Tonnage. 




38 1 3,780 


43 

6 

20 

22 


66, 169 

9,524 

32,405 

25, 587 


46 


9,490 


30 

6 

20 

22 


52 224 




9,524 
32,405 
25, 587 




79 16,395 

1 


78 


10, 255 


Cuban 


Colombian 


3 

10 

23 

1 

3 


299 
519 

1,744 


3 

10 

20 

1 

3 


299 

519 

1,398 

25 

718 






1 


2,134 


1 


2,134 


Dutch 


Dominican 


25 












718 


51 
38 
6 
3 
45 


51, 761 
62, 565 
11,929 
2,628 
119, 653 


52 

36 

6 

3 

41 


53,08S 

59, 350 

11,929 

2,628 

112,699 


German 


Italian 


| 






Norwegian 


3 ; 1,245 
8 1 2,179 
1 111 


3 
9 
1 


1,245 

2,323 

111 


Spanish 


Venezuelan 












Total 


169 


21,015 


235 


384,355 


174 


"26,383 


217 


361, 568 







FISCAL YEAR ENDED JUNE 30, 1905. 



American 


59 


1,011 


42 
2 
27 
13 
16 


65,055 
3,233 
43,345 
14,910 

. 8,777 


75 


11,255 


28 
2 
24 
13 
15 


48,937 




3,233 




84 


11,676 


83 


11,317 


37,242 


Cuban 


14,910 




4 
19 
3 


37 

1,332 

126 


4 
19 
3 


37 

1,332 

126 


8,611 


Dutch 




1 
49 
35 

3 

5 
40 

3 


24 

51,844 

58,878 

6,688 

4,195 

109,007 

235 


1 
49 
35 

3 

6 
40 

3 


24 


French 1 


51,844 


German 










59,645 
6,688 


Italian 




















5,057 
107,026 


Spanish 


8 


1,984 


8 


1,934 


Venezuelan 


235 














Total 


177 


16,766 


236 


366, 191 


192 


26,001 


219 


345,452 





FISCAL YEAR ENDED JUNE 30, 1906. 



American 


48 
56 


2,639 
8,037 


40 

28 

1 

12 


62,917 
45,928 
1,195 
13,598 


68 
51 


12,257 
7,821 


27 
26 


48,791 


British 


42,582 


Belgium 


Cuban 








12 


13, 598 


Colombian 


1 
10 

4 
5 

1 


94 

773 

225 

135 

57 


1 
10 
4 
5 
1 


94 
773 
225 
135 

57 




Dutch 










Danish 






5 

48 

36 

4 

4 

39 




Dominican 


5 

48 

36 

4 

4 

39 


196 

58,874 

65,755 

8,607 

4,784 

111,685 


196 


French 


58,874 


German 


65,755 


Italian 










8,607 


Norwegian 








::::::" 


4,784 


Spanish 


5 
4 


1,138 
373 


4 
3 


1,073 
266 


111,685 


\ enezuelan 












Total 


134 


14,071 


217 


373,539 


147 


22,701 


201 


354, 872 





HARBOR WORKS. 



In my report for the year ending June 30, 1905, I strongly recom- 
mended that an appropriation be secured from Congress for the im- 
provement of the harbor of San Juan. Since the report was written 
the survey authorized by the act of Congress in section 9 of the river 
and harbor act of March 3, 1905, has been made by an officer detailed 
by the War Department, and I take this opportunity of renewing 



POETO EICO. 21 

my recommendations of last year. From the year of the American 
occupation no harbor work of any character has been undertaken in 
the island of Porto Rico. Indeed, until June of the present year, 
owing to the fact that the ownership of lands underlying the harbor 
areas was vested in the United States by the organic act, no piers or 
bulkheads of any kind could be constructed without first securing 
permission from Congress. Fortunately for the commerce of the 
island the United States Congress, during its session just ended, 
passed a law empowering the Secretary of War, under certain re- 
strictions, to grant authority for the construction of piers and 
wharves in the harbors and navigable waters of Porto Rico. 

Inasmuch as some difference of opinion existed as to whether it 
would be more beneficial to the commercial interests for the Govern- 
ment to own the wharves or piers in Porto Rico, or to permit their 
construction and operation by private individuals and corporations, 

1 called a special session of the legislature to meet on July 5 to 
determine this question, and also to pass very necessary rules and 
regulations for the policing of the harbor areas of the island. At 
the present time, although the commissioner of the interior, under 
the authority of the legislative assembly, has promulgated rules and 
regulations with regard to the harbor areas in Porto Rico, no penalty 
is attached to their violation, and in consequence much confusion is 
likely to occur. 

With regard to the harbor of San Juan, I can but quote the state- 
ment made in my report of last year : 

In 1902 the well-known engineer, William H. Burr, at the present time con- 
nected with the Panama Canal Commission, was engaged by the insular govern- 
ment to make a survey of the harbors of San Juan, Ponce, and Mayaguez, 
and to report upon the practicability of various plans for improvement, with 
the approximate cost that would be entailed. The report of Professor Burr 
shows that the harbor of San Juan could be made sufficient for all needs at 
the present time at a comparatively low cost. The available depth of the present 
harbor can not be considered to exceed 24 feet, and the channel and anchorage 
ground is so restricted ' that even comparatively small ships are obliged to 
make many maneuvers of backing and starting to turn within the deep water, 
while the narrowness and shallowness of the channel prevent the entrance of 
the larger ships, which would otherwise make San Juan a port of call. The 
present harbor is described by Professor Burr in his report as follows : 

The water surface of what may be called the harbor of San Juan is about 

2 miles in extent in a northwest and southeast direction and about three- 
fourths of a mile in a southwest and northeast direction. The range of tide 
between mean high and mean low water is about 1$ feet. Much less than half 
of this total water surface is now available for harbor purposes in consequence 
of a number of shoals, some of them of large area. This water forms a natural 
harbor, well protected in every direction, to which entrance is secured by a 
channel of varying width, the direction of that channel being from northwest 
to southeast. The least width of this channel affording a maximum depth at 
low water of 28 to 32 feet is for a short distance about 400 feet, the width in 
other portions varying from about 800 feet west of Morro Point to perhaps 
1,200 feet inside of that section, and to about fiOO feet southwesterly of Puntilla 
Point, on which the naval station is located. Inside of Puntilla Point lies 
the inner harbor proper, practically landlocked, protected completely from the 
north by the rocky ridge on which the city of San Juan is located." 

The Punta Larga shoal mentioned is partially exposed at low water and has 
an average width of perhaps from 800 to 900 feet. It is in reality a " long 
point or bar, running from the low ground on the east directly into the center 
of the deep-water portion of the naturally protected harbor area." The shoal 
is composed of mud, sand, and sandy clay, and above the depth of 40 feet 
below low water can be readily dredged. The borings made by Professor Bun- 
show that the material forming the bottom of the harbor in all places is 



22 POETO ETCO. 

dredgeable to any depth to which it may he found desirable to excavate for 
harbor purposes. There are many modern dredges of large capacities in various 
parts of the United States at the present time engaged on just such work, 
which belongs, indeed, to the more common class of operations in the construc- 
tion or improvement of harbors. The cost of removing such material is 
comparatively small, in many cases not exceeding 9 or 10 cents a cubic yard, 
and in some cases even less. 

Owing to the fact that Professor Burr, with the limited time at his dis- 
posal, was unable to make many borings, he deemed it desirable to place a com- 
paratively high estimate on the cost of dredging the harbor, fixing as he did an 
estimate of 25 cents a cubic yard, although he states that he considers it possi- 
ble that all the material proposed to be dredged could be removed for perhaps 
15 or 18 cents a cubic yard. But even with this high estimate the cost as 
given by Professor Burr is very slight considering the advantage that will accrue 
to the commerce of the island of Porto Rico. The material excavated could be 
used in reclaiming the large tracts of marshy lands to the east of the present 
harbor limits, and which would prove of the utmost value as the natural 
outlet for the commercial growth of the city. The increase in the value of 
reclaimed lands would, it is estimated, offset any expense that might be in- 
curred in dredging the harbor. Professor Burr estimates the cost of dredging 
Punta Larga shoal to a depth of 24 feet at low water, taking the unit of 
cost at 25 cents a cubic yard, to be $325,000, while to provide the inner harbor, 
approximately rectangular, 8,500 feet long in a north and south direction and 
2,200 feet wide in an east and west direction, 30 feet deep at low water, in- 
cluding the dredging of the Punta Larga shoal, would entail an expense of 
$750,000. Every foot of depth dredged in addition would cost approximately 
.$71,500. Should it be considered desirable to provide a larger harbor area 
than that mentioned above, it could be easily secured at a comparatively small 
cost by continuing the dredging eastward to the Carlo of San Antonio. 

Owing to the extremely small range of tide— about 1^ feet — and the absence 
of any sensible current, it is not probable that much difficulty would be sub- 
sequently encountered through the refilling of the portions dredged. The com- 
mercial importance of this harbor will undoubtedly greatly increase in the near 
future, both from the excellent protection it affords shipping and also from its 
being the natural stopping point for vessels going to and from the Panama 
Canal. Should it be deemed at any time desirable to establish a naval station 
in San Juan, or to equip San Juan as a base for naval supplies, the harbor 
would have to be dredged to render possible the entrance and accommodation 
of any of the larger cruisers or battle ships. San Juan is the only good com- 
mercial harbor the United States possesses in the West Indies, and the improve- 
ment, entailing, as it does, but slight cost, would be of inestimable and far- 
reaching importance to the inhabitants of this island. Professor Burr strongly 
recommends that the improvements be made, stating : 

" It is my judgment that the natural features of the harbor fit it peculiarly 
for improvement to meet the demands of modern marine commerce, and that it 
is worthy of such improvement. It possesses one feature in particular which 
emphasizes that conclusion, and that is the capacity for practically unlimited 
extension for such demands as may arise in the future development of the 
island." 

BANKS AND BANKING. 

There are nine banks established in Porto Rico, one of which is 
unincorporated. In addition to these, some of the more important 
commercial houses engage in the business of buying and selling ex- 
change, acting as agents for banking institutions, receiving deposits, 
etc. Of the existing banks, five were organized during the Spanish 
regime, and four have been established under American sovereignty. 
There is one national bank in Porto Rico, which was opened in Janu- 
ary, 1903, with a paid-in capital stock of $100,000. Under the pro- 
visions of the laws of Porto Rico, the treasurer is clothed with the 
powers of a bank examiner, and is given authority to require reports 
from the various banking houses showing their financial status at 
the close of each month. He is furthermore authorized to make 



POETO EICO. 23 

special examinations at any time he may deem proper, and to cause 
appropriate action to be taken should the condition of the institution 
be found to be such that its continuance would be unsafe. The banks 
existing at the present time are the following : 

The Banco cle Puerto Rico, formerly known as the " Banco Espafiol 
de Puerto Rico," organized in 1888; the Banco Territorial y Agri- 
cola, established on July 2, 1894; the Creclito v Ahorro Ponceho, 
chartered on February 8, 1895 ; the Caja de Economias y Prestamos 
of San German ; the Banco Popular of San Juan ; the First National 
Bank of Porto Rico, organized January 1, 1903 ; the American Colo- 
nial Bank, incorporated under the laws"of the State of West Virginia 
April 4, 1899 ; the J. T. Silva Banking and Commercial Company, 
incorporated January 1, 1901; and Luce, Crehore & Co., an unincor- 
porated private bank. 

The improved economical condition of the island is to be noted in 
the increased deposits and net earnings of the various banks. The 
establishment of savings banks, or a system of postal savings banks, is 
very desirable, and would do much to instill a spirit of economy and 
thrift among the inhabitants. 

AGRICULTURE. 

Manufactures play as yet but a trivial part in the island's fortunes. 
It is true that cigar manufacturing, hat making, fruit canning, and 
linen embroidery contribute to support a growing number of families, 
but even these industries, with the exception of the last named, are 
largely dependent upon agricultural development. The economic 
life of the island is so closely allied to the results of the harvest that 
too much stress can not be laid upon the importance of agriculture. 
The mineral resources of the island are in all probability but slight 
although during the past year efforts to mine gold in the vicinity of 
Comerio have been renewed with considerable energy. For years to 
come manufactures must necessarily be comparatively unimportant- 
finished articles will be imported from the United States or abroad', 
while the list of exports will be largely composed of raw sugar 
tobacco, and coffee. For this reason it will be advisable to describe 
in detail the progress made in the different agricultural products 
since my previous report. 



Sugar still remains the most important product of the island. The 
development of this industry has been normal and healthy, and it is 
safe to predict that it will increase in importance from year to year 
until all available sugar land shall be under cultivation. Durino- 
the past year two new factories ground their first crop, three more 
will be ready for the next season, and at least two sugar centrals are 
planned for the crop of 1908. In addition to this, new machinery 
lias been installed in a large number of the older factories, so that in 
many cases their equipment is modern. Progress is especially notice- 
able m the milling plants. Nine-roller mills are now to be found in 
districts where formerly the extraction of single and double crushino- 
was considered sufficient, and orders have already been placed for 
two twelve-roller mills, one of which is to be preceded by a crusher 



24 



PORTO RICO. 



The growing scarcity of wood and the high price of coal make it 
more and more imperative that a factory should supply its own fuel. 
Chemists are employed even in the smaller factories, and the losses 
in manufacture, which used to be considerable, especially in the waste 
molasses, are steadily decreasing, thanks to better extraction, crystal- 
lizers, and chemical control. The jdeld of sugar per acre still falls far 
below the results attained in the Hawaiian Islands." It should be 
borne in mind that the soil of Hawaii is not superior to that of Porto 
Rico, nor is the climate more suitable for the production of sugar 
cane. The large yields have been obtained solely by the application 
of modern agricultural methods, by judicious fertilization, careful 
irrigation, and intense cultivation of the soil. In view of the limited 
area suitable for good sugar lands in Porto Rico, it is most essential 
to obtain the maximum production from each acre. Many planters 
already realize this, and the introduction of steam plows and the 
increasing importation of chemical fertilizers are hopeful signs for 
the future. In many parts of the island irrigation is unnecessary, 
in others water can readily be pumped from adjacent rivers, but on 
the southern coast the protracted droughts and the scarcity of streams 
make it necessary for planters to have recourse to systems of wells. 
Each well system consists of a series of pipes driven into the earth to 
an average depth of 50 feet; suction pipes connect the wells, and 
water is raised to the surface and distributed by means of pumps 
driven by steam or gasoline motors. Successful experiments have 
been made with windmills to utilize the force of the trade winds 
which blow steadily during the dry season as motive power. Lands 
which lie at an elevation too great to permit of the use of suction 
pumps have hitherto remained uncultivated, but the recent trial of a 
pump forcing water to the surface by compressed air would seem to 
have solved the problem of irrigation at high levels. 

It is probable that as the sugar plantations encroach upon the avail- 
able pasture lands the use of cattle for plowing and field transporta- 
tion will decrease, and that they will be substituted either by mules 
or motor plows and cultivators. The harvesting of the crop is still 
performed* by hand. The sugar cane, once cut and windrowed, is 
loaded into bullock carts and hauled to the nearest railway switch, 
where it is dumped on the ground, to be again loaded into railway 
cars. Many devices have been employed to avoid the double loading, 
but as yet portable track and light cars are the only practical alter- 
native to this wasteful method of handling. 

Fortunately, Porto Rico is comparatively free from parasites and 
insect pests from which other sugar-producing countries suffer. The 
cane borer, it is true, is widely disseminated, but the resulting damage 



a Statistics taken from the records of the Etoa Plantation, Hawaiian Islands. 



PLANT CANE. 

1894-95 

1895-96 

1896-97 

1897-98 



Cost of 
fertilizing 
per acre. 


Yield of 

sugar per 

acre, in 

tons. 


$9. 39 

9.17 

28. 03 

30.85 


6.40 
8.40 
9.20 
11.26 



RATTOONS. 

1894-95 

1895-96 

1S96-97 

1897-98 



Cost of 
fertilizing 
per acre. 



3.34 
5.69 
5.35 

22. 96 



Yield of 

sugar per 

acre, in 

tons. 



6.19 
7.16 
5.45 
8.8 



POETO EICO. 25 

is inconsiderable, and is usually confined to wet lands. The custom 
of burning off the trash after cutting the cane is also a great check 
to the propagation of the borer and other insects. 

It is an encouraging sign of the condition of this industry that a 
majority of the sugar factories produce less than 5,000 tons per 
annum, and are operated by resident owners. Owing to the protec- 
tion of the tariff on sugar and the topography of the island they are 
able to compete in spite of the economic necessity of manufacture 
on a large scale, which seems to prevail elsewhere. 



The cultivation and production of tobacco has made immense strides 
during the past year, and although five years ago the total export 
of this product amounted in value to approximately but $700,000, its 
value is now surpassed only by sugar. The improvement in this 
product is especially valuable as, like coffee, it can be produced with 
small outlay by the peasant proprietor. Tobacco lands have risen 
greatly in price, and each year new sections are opened up for its cul- 
tivation. The scientific methods of growing, curing, and fermenting 
employed by the larger companies have had a good effect both in 
increased production and in the quality of the cigars manufactured. 
The practice of growing tobacco under shade has proved successful, 
and the acreage protected by cheese cloth has been largely extended 
in the past year. Although the expense of this method of cultivation 
is great, approximating $500 per acre, the additional outlay is more 
than recovered in the increased yield and in the better class of leaf 
produced. One company during the past year has constructed at 
various points in the island six warehouses, 'in addition to a factory 
to accommodate upwards of 2,000 hands. During the coming year, 
apart from the purchase of a large building, formerly used as a dis- 
trict jail, for the purpose of a tobacco factory, it contemplates the 
construction of 6 concrete warehouses, 70 barns for curing tobacco, 
and 50 houses for farm hands. This spirit of enterprise has provided 
a great amount of work for laborers in the different towns, and the 
scientific methods employed afford practical illustration to the small 
proprietors of the necessity for improved cultivation. 

COFFEE. 

Coffee was the chief staple of the island until the disastrous hurri- 
cane of August, 1899. The export of this product reached the maxi- 
mum of 58,772,749 pounds, valued at $8,318,604 in 1896. The exports 
of the past fiscal year amounted to 28,290,322 pounds, valued at 
$3,481,102. which, although considerably less than in former days, is 
higher than the figures for the. prior fiscal year. The decrease of the 
crop is due primarily to the hurricane, although the change of cur- 
rency, the change and in many cases the loss of former markets, and 
the fall m price, due to the large output from Brazil, are also re- 
sponsible for the depressed condition of the coffee business. 

The importance of the coffee crop to the island is greater than / 
would at first appear. It is preeminently the crop of the small proV 
prietor. The United States census of Porto Rico for 1899 gives the 
number of coffee plantations as 21,693, and the entire area planted 



26 PORTO RICO. 

197.031 cuerdas (a cuerda being practically the equivalent of an 
acre), an average of only 9 cuerdas per plantation. The fact that 41 
per cent of the total cultivated area of the island, and nearly one- 
tenth of its entire area was planted in coffee, further illustrates how 
closely connected with the prosperity of this crop was the welfare of 
the 'inhabitants of the island. The cultivation of coffee is rendered 
easy to the small planter, as but little capital is required and expen- 
sive implements unnecessary. It is true that there is no return for 
the first five or six years after the trees are planted, but owing to the 
small amount of cultivation that is needed a peon or day laborer can 
cultivate three or four acres, at the same time devoting his time to 
working on the larger plantations. By far the larger portion of 
Porto Rico is mountainous, and is therefore well adapted to the 
cultivation of coffee, but not suitable for the production of sugar 
cane, citrus fruits, or sea-island cotton. It is impossible, therefore, 
to substitute any of these crops in the place of coffee. 

The outlook for the coffee crop during v this coming fiscal year is 
excellent, and should no hurricane or other disaster be experienced 
the harvest should be the largest of any since the American occupa- 
tion. The Government has endeavored to create a market for this 
coffee in the United States, through the establishment of a commer- 
cial agency in the city of New York; but although the agency has 
made a number of sales, and has succeeded in creating a greater in- 
terest in this excellent product of the island, it is hampered by lack 
of funds, and can accomplish relatively but little. 

The importance of this crop is so great, and its success or failure so 
far-reaching and widespread, that I earnestly hope that it will be 
placed upon the protected list by Congress. Such action would not 
only bring prosperity to Porto Rico, but would render great assist- 
ance to Hawaii and the Philippine Islands as well. It is but little 
known that a few years ago coffee ranked fourth in the list of exports 
from the Philippine Islands, and that now it is produced in but very 
small quantities. The territory suitable for its production in the 
tropical possessions of the United States is so great that the Philip- 
pines, Porto Rico, and Hawaii, if stimulated by a protective duty, 
could produce within a few years a large proportion of the total 
amount of coffee consumed in the United States. 

CITRUS FRUITS. 

There has been an increase in the exportation of citrus fruits since 
my last report, owing both to the higher price obtained by the wild 
orange in the markets of the United States and to the fact that a 
few of the cultivated orange plantations have begun to make ship- 
ments. Prior to American occupation citrus fruits were not culti- 
vated in Porto Rico, but at the present time there are probably some 
7,000 acres set out and under cultivation. Until the past year the 
native wild fruit was not shipped with the precaution necessary to 
insure its reaching the market in good condition. The fruit was 
allowed to fall from the trees, was carried to the shipping port 
on mule back, and packed promiscuously, no attention being paid 
to grading. For this reason the fruit did not command a high 
price. During the past year, however, much greater care has been 
taken in shipments, and the planters have been duly rewarded. 



PORTO RICO. 27 

Within the coming fiscal year increased shipments of cultivated 
fruit will be made, and at the end of two or three years a large 
number of the trees of the different plantations of the island will 
have reached maturity. It has been found advisable to bud the 
different classes of orange and grape fruit upon the native lemon 
stock, this being the most hardy stock that can be found. The price 
of land suitable for orange growing varies between $20 and $100 per 
acre. The trees should begin to bear in three or four years, although 
their full yield will not be reached for some years later. Fruit grow- 
ing has attracted a number of American settlers in the vicinity of 
Bayamon, Manati, Arecibo, Rio Pieclras, and Carolina, and in almost 
every case the plantations have flourished, and promise to yield good 
returns to the owners. Various classes of oranges and grape fruit 
have been introduced, in addition to lemons and limes. The culti- 
vated fruit brings a good price in the New York market, and the 
groves of the island have the advantage over those in California and 
Florida in cheap freight rates to the northern markets. There is, 
moreover, no clanger of frost, which has so often destroyed the crops 
in Florida. 

PINEAPPLES. 

There has been considerable increase in the growing of pineapples, 
especially the varieties which proved best adapted for shipment to 
the United States markets. The Red Spanish variety, of which 
several million plants have been imported from Florida and Cuba. 
is the favorite with most of the planters and is the one chiefly grown 
for export. Among the other classes of pineapples grown are the 
Cabezona, Pan de Azucar, and the Smooth Cayenne. Several can- 
neries are at the present time in operation, and large shipments have 
been made with success to the United States. In several instances 
pineapples are grown in connection with citrus fruits. When planted 
between rows of trees approximately 4,000 pineapple plants to the 
acre can be set out without unduly interfering with the trees. When 
planted by themselves this number can be increased to 8,000 or 10,000 
per acre. 

SISAL AND OTHEE FIBER PLANTS. 

The legislative assembly of 1905 appropriated the sum of $10,000 
for the cultivation and commercial exploitation of fiber and other 
plants in Porto Rico. Under authority of this law, and with the 
advice of the Department of Agriculture of the United States, a 
number of bulbils of the Yucatan henequen plant, the true agava 
rigida elongata, were introduced, and an attempt is being made to 
secure a large number of suckers of the same variety. This plant, 
probably more commonly known as sisal, grows readily on poor and 
dry hillsides where other crops will not flourish. The bulbils and 
suckers will be planted under the direction of the United States agri- 
cultural station- in Mayaguez and will be distributed to individual 
planters who care to make an experiment in growing this fiber plant. 
There has been considerable difficulty in securing suckers from Yuca- 
tan, but I hope to obtain a number from the neighboring islands, and 
that before long another flourishing industry will be established in 
Porto Rico. A number of machines have been invented for extract- 
ing the fiber from the sisal plant, some of which are so inexpensive 
as to come within the reach of the smaller planters. 



28 



PORTO RICO. 



Maguey plants are found growing wild in various sections of the 
island, and sample leaves have already been sent to the United States 
to ascertain their commercial value. The following table indicates 
that the fiber is of fair strength, although not as strong as sisal or 
abaca : 

Breaking 
_ strain corn- 
Fibers, meter of strain of puted for 

one gram 
per meter. 



Porto Rican maguey (machine cleaned) 

Yucatan sisal (poor quality) 

Hawaii sisal (select) 

Abaca (Manila) 



Average 


Average 


weight of 


breaking 


meter of 


strain of 


single 


single 


strand. 


strand. 


Grams. 


Grams. 


0. 0189 


3ti0 


.053 


1,130 


.0588 


1,640 


.05 


2,724 



Grams. 
19,047 
21,321 
27,891 
54,480 



The Porto Rican maguey is finer and lighter than the other fibers, 
and its strength, therefore, must be compared on the basis of the 
breaking strain of one strand weighing 1 gram per meter. The 
chief difficulty in the exploitation of this fiber is the low yield and 
the small percentage of fiber in the leaf. The average weight of the 
leaves was slightly less than 2 kilograms. The yield of fiber was 
about 0.99 of 1 per cent of the weight of the green leaves. Sisal in 
the Bahamas averages about 3.75 per cent. Henequen in Cuba has 
yielded as high as 6 per cent, the average in Cuba and Yucatan being 
between 4 and 5 per cent. 

It is interesting to note in the annual report of the secretary of the 
interior of the Philippine Islands for 1905 that the government 
of that archipelago is also taking steps to encourage the cultivation 
of the plant. 

The insular government is considering the advisability of import- 
ing from Panama and Colombia the jipa japa fiber plant used in 
those countries for hat weaving. At the present time hat manufac- 
turing is a growing industry in the island, and factories for weaving 
finer grades of Panama hats have been established in three towns of 
the island. Several hundred women and girls are thus employed. 
The raw material is imported from Panama and Colombia, • and 
the manufactured article shipped directly to the United States. It 
is hoped that by the introduction of this plant the industry can be 
greatly stimulated and employment afforded a large number of 
families. 



Cotton, during the past year, has probably taken a backward step ; 
for, although undoubtedly certain sections of Porto Rico are well 
adapted to the production of the best grade of sea-island cotton, 
there is as yet but little familiarity with the most advanced methods 
of its cultivation. Planters prefer, as a rule, to grow crops like cane, 
tobacco, or citrus fruits, which promise greater returns for the out- 
lay. The success of the crop depends entirely upon scientific meth- 
ods of cultivation, which- are not difficult to adopt. It is necessary 
to use a large amount of fertilizers, as is the practice in the sea 
islands of Carolina and Georgia. There is no boll weevil in Porto 
Rico, such as threatens the cotton industry of the Southern States, 



POKTO KICO. 29 

and its worst enemy is the ordinary cotton caterpillar. In the dis- 
tricts which cultivate this product in the United States, this is not 
considered a serious pest, as it can easily be exterminated by sprink- 
ling the plants with Paris green. The use of insecticides is almost 
totally unknown to the planters of the island, and in fact it is diffi- 
cult to get a supply of Paris green outside of San Juan. As a result, 
whole cotton fields have been devastated before the planter could 
take precautions against the spread of the caterpillar. Under proper 
conditions, there is a promising future for the production of cotton 
m Porto Rico, but before any success can be obtained it will be neces- 
sary carefully to instruct farmers and growers in the proper methods 
of scientific cultivation, and in avoiding the different pests that are 
common to this product in all parts of the United States. 

ANIMAL INDUSTRY. 

During the past year an attempt has been made on a small scale 
to introduce live stock from the United States for the purpose of 
improving the breed of domestic animals in the island. In the latter 
days of the year 1905 I authorized the expenditure of a small sum 
from the miscellaneous fund placed at my disposal by the legislature 
for the purchase of 1 young Jersey bull, 2 heifers, 3 young Berk- 
shire pigs, and 1 Spanish jack. Upon their arrival t placed the 
animals in charge of the director of the agricultural school connected 
with the University of Porto Eico in Rio Piedras. The Jersey cat- 
tle, secured through the agency of the Kentucky Agricultural Ex- 
periment Station at Lexington, arrived in the island in poor condi- 
tion, but have now become acclimatized and are doing well. Owing 
to the fact that the animals were imported when very young, they 
have not as yet been bred, but will be sufficiently matured for breed- 
ing purposes within a short time. The Berkshire pigs grew rapidly, 
and have proved a great success. The boar was crossed with two 
native sows who recently gave birth to litters of 8 and 9 pigs, respec- 
tively. These young pigs are very promising, and 50 per cent more 
than current prices have been offered for them for breeding purposes. 
The Spanish jack, temporarily loaned to Mr. Florencio Santiago, 
of Coamo, a gentleman much interested in the improvement of Porto 
Rican stock, was bred several times, but it is too earlv to state the 
practical results. 

It is my intention to lend the Jersey bull and the jack to various 
planters interested in breeding in different parts of the island, and 
to charge a nominal fee for their use by the cattle owners in the 
vicinity. Should the experiment prove a success, the government 
proposes to undertake this work of improving the breed of domestic 
animals on a large scale. 

ROADS AND TRANSPORTATION. 

Approximately 20 miles of macadam road have been built during 
the past year. This comparatively small increase in mileage is due 
to the fact that the Congressional appropriation, returning to the 
island revenues collected on importations from Porto Rico to the 
United States the fund from which the construction of roads was 
met in past years, is nearly exhausted. At the last session of the 



30 



PORTO RICO. 



legislature a government loan of $1,000,000 was authorized to com- 
plete roads already under construction and to carry out a compre- 
hensive plan or insular highways which will open up all the impor- 
tant districts of the interior and provide easy and inexpensive means 
of communication with the seacoast. Preparations are being made 
for the sale of these bonds, and it is probable that the money will be 
available before the close of the present calendar year. The length 
of roads now under maintenance by the insular government aggre- 
gates 680 kilometers, an increase of 18 kilometers in the past year. It 
is likely that within the ensuing year these figures will be increased to 
805 kilometers. The cost of maintenance per kilometer is consider- 
able, owing to the heavy tropical rains and to the fact that the roads 
of the island are built upon a foundation of loam, clay, or decomposed 
rock. The excess over the amount estimated in my last report is due 
in part to the heavy traffic carried on in bull carts over the San Juan- 
Caguas section and partly to the increased cost of labor. The up- 
keep of San Juan-Caguas road amounts to $658 per kilometer, 
while in one road district the expense is only $44.89 per kilometer. 
Still, the average cost was $91 per kilometer less than the preceding 
year. I believe that this can be still further reduced, although I 
doubt if it will ever be less than $180 per kilometer. The construc- 
tion of the two railways now projected between San Juan and Ca- 
guas will do much to lessen the wear and tear on this portion of the 
insular road sj^stem and will naturally reduce the average expense. 
The following table shows the cost of maintenance per kilometer and 
the amount of broken stone used in the past four years : 



Year. 


Kilometers 
under 
mainte- 
nance. 


Total cost 
of mainte- 
nance. 


Cost per 
kilometer. 


Broken 
stone used 
per kilome- 
ter (cubic 
meters) . 


1903 


445.1 

518.2 
662.0 
680.0 


S176, 783. 07 
193, 737. 37 
193,021.17 
137,201.12 


$397. 18 
373. 87 , 
291. 57 
201.77 


62.5 


1904 


58.3 


1905 


66.5 


1906 


65.3 







In addition to the one-million-dollar loan, the legislature appro- 
priated $50,000 for the construction of certain necessary roads. The 
work has already been begun and is progressing satisfactorily. In 
the construction of roads the policy of the government will be to give 
preference to those roads which connect the interior with coast towns, 
and to those districts where the property owners of the vicinity 
demonstrate a desire to assist the government by lending their carts 
and by furnishing stone. 

I am glad to report that there has been great activity in railway 
building during the past year. On February 15, 1906, the American 
Railway Company opened for public service 16 kilometers of the gap 
of 43 kilometers between Camuy and Aguadilla, and expects to com- 
plete the remaining portion by October, 1906. This will provide a 
continuous line of railway from San Juan to Ponce, through the im- 
portant cities of Arecibo, Mayaguez, and Yauco. The work presented 
considerable difficulties, large cuts through rock and considerable 
bridging being necessary. As soon as this work is completed, the 
railway will at once begin the construction of a line between San 











w 




,0 




^ 




* 










s 
3 


<n 


3 






o 




" 




. 


1 
1 


in 


a 


o 5 



PORTO RICO. 



31 



Juan, Caguas, and Naguabo; the first section of this line between 
San Juan and Caguas will be completed within eighteen months. 
The following table shows in brief the increase in passengers car- 
ried, tonnage hauled, and gross receipts of the American Railway 
since 1902 : 





Passengers 
carried. 


Tonnage 
hauled. 


Total gross 
receipts. 


1902 


125, 697 
144, 629 
179,175 
213, 824 


116,210 
195, 357 
348, 405 
470,913 


$227,769.57 


1903 


268,019.82 


1904... 


391,890.28 


1905 


526,289.30 







From this table it will be seen that the tonnage hauled increased 
300 per cent in three years, and the gross receipts 130 per cent in the 
same period. For the past year the increase in both these items was 
35 per cent. The enormous expansion of the area planted in sugar 
cane is mainly responsible for these remarkable figures. 

In addition to the extension of the American Railway Company, 
franchises were granted for the four following lines : From Mameyes 
to Naguabo, via the towns of Luquillo, Fajardo, and Ceiba; from 
Ponce to Coamo via Juana Diaz ; from Humacao to Humacao Playa ; 
and from Vega Alta to Dorado. The San Juan Light and Transit 
Company, which obtained a franchise for the use of the Comerio 
waterfalls, for the purpose of generating electricity for motor power 
and lighting, has presented an application for permission to extend 
their trolley line from its present terminal point in Rio Piedras to 
Caguas, and has agreed to complete the work within two years. I 
beg to call attention to the attached map, showing the roads and rail- 
ways constructed and under projection. 

JUDICIARY. 

During the past year there has been considerable change in the 
personnel of the district courts of the island, although the supreme 
court remains the same. The courts, as a whole, have shown a 
decided improvement in the interpretation and application of the 
codes based on the statutes in force in the different States, and the 
juries have demonstrated a higher sense of responsibility than here- 
tofore. As at present constituted, the supreme court consists of five 
judges, three of whom are natives and two citizens of the United 
States. In the district courts seven of the eight judges and six of 
the fiscals (district attorneys) are Porto Ricans, while all but one 
of the officials of the 24 municipal courts and of the 62 justices of 
the peace courts are natives of the island. The United States dis- 
trict court for the island possesses a jurisdiction more extensive 
than is usual in the States and Territories. In addition to the ordi- 
nary jurisdiction of the district, courts for the United States, it has 
jurisdiction of all cases cognizant in the circuit courts of the United 
States, and through an amendment to the organic act of Porto Rico 
it is empowered to hear and decide controversies " where the parties, 
or either of them, are citizens of the United States, or citizens or sub- 
jects of a foreign state or states, wherein the matter in dispute 
exceeds, exclusive of interests or costs, the sum or value of one thou- 
sand dollars." Contrary to the usual custom, the salaries and ex- 



32 PORTO EICO. 

penses of the United States district court are paid by the local gov- 
ernment, although the administrative control of this court is retained 
in the Department of Justice of the United States. This system is 
unfortunate. It is unsatisfactory to both the federal court and the 
insular government. The administrative supervision and the ac- 
countability for the expenses of the court should be vested in one 
government, whether it be federal or local. It is the earnest desire 
of the insular government, as well as the members of the federal 
court, that with respect to the payment of salaries and expenses, it 
be placed in the same category as other district courts in the United 
States. 

The most important legislation adopted at the last legislative 
assembly respecting the department of justice was the enactment of a 
law creating a code commission, with authority to revise and compile 
the laws of Porto Rico. In compliance with the terms of the act, a 
commission has been appointed, consisting of Mr. Eduardo Acuiia 
Aybar, as chairman, and Mr. Jacinto Texidor and Judge Henry F. 
Hord. lawyers of recognized ability and standing. 

The courts of the island have been without an adequate supply of 
law books, and in order to correcct this defect an act was adopted at 
the last session creating law libraries for the district courts, and an 
appropriation was made for the purchase of the necessary law books. 

Heretofore the municipalities were under the administrative super- 
vision of the secretary of -Porto Rico. A radical change has been 
made in that respect. A new municipal law was adopted, taking effect 
on July 1, 1906, which removes the municipalities from the jurisdic- 
tion of the secretary of Porto Rico, and, to some extent, places them 
under the jurisdiction of the attorney-general, thereby adding con- 
siderably to the work of the department of justice. The attorney- 
general, under the new law, will act simply in an advisory capacity, 
and in certain cases, when in his opinion a municipality is not com- 
plying with the law, he may institute proper proceedings in the courts 
to compel compliance on the part of the municipality with all legal 
requirements. 

Important legislation was also adopted providing for election con- 
tests in the courts. The law follows the statutes on that subject 
existing generally throughout the United States, and provides a sum- 
mary and effective procedure to try the right to an elective office, 
other than that of commissioner to Washington or member of the 
legislature. 

The increasing business in the district court of San Juan made it 
impossible for the judge to keep up with his docket. An act was 
therefore passed by the last assembly, reorganizing the court and pro- 
viding for two sections, each to be presided over by one judge, one 
of whom has exclusive jurisdiction in criminal cases coming within 
the ordinary jurisdiction of a district court, and of all cases in which 
the people of Porto Rico is a party, and of appeals in civil cases from 
the inferior courts. The other section is given the general civil juris- 
diction of a district court. 

In addition to the above legislation a number of bills were passed 
making amendments in the Law of Evidence and the Code of Civil 
Procedure. The law regarding the admission of attorneys at law 
was amended so as to require a more extended examination of appli- 
cants for admission. 




RECENTLY ERECTED HIGH SCHOOL, PONCE. 




RECENTLY ERECTED GRADED SCHOOL, ISABELA 



POKTO RICO. 33 

EDUCATION. 



Progress in educational matters in the past year has been in the 
nature of a gradual evolution and perfection of existing organiza- 
tions. In spite of the fact that practically the same number of teach- 
ers were employed as in the previous year, there has been a gratify- 
ing increase in enrollment and attendance. The schools have reached 
a larger number of children by awakening local interest, stimulating 
both enrollment and attendance, and by the system of half-time 
schools, which enables one teacher to devote his attention to two dif- 
ferent sets of children on the same day. Unfortunately, in many 
places the class rooms are already crowded to the full extent of their 
seating capacity, and half-time schools are applicable only to the 
lowest grades. They can not be employed very effectively in towns, 
and in the rural districts are unavailable where the population is 
sparse and widely distributed. 

It is a matter of regret that there has been no substantial increase 
in the rural schools. If such schools are necessarily less effective as 
educational instruments, still it is to be remembered that the great 
mass of the population lives outside of the urban limits of the various 
municipalities, and that the rural schools are important centers of 
influence which are capable of doing great good. Despite the earnest 
efforts of the department of education the number of rural schools 
has not increased. It seems probable that this condition has been due 
to the comparatively unfavorable economic position of the rural 
teachers. A few years ago the number of rural schools was much 
larger than at present. Many of the teachers then employed have 
since acquired certificates as graded teachers. In this class the num- 
ber of qualified teachers is larger than the number of schools avail- 
able. Some accept rural schools, but others who can not obtain em- 
ployment as graded teachers are unwilling to do so. There has not 
been an adequate growth in the number of rural teachers, nor are all 
the rural teachers employed in schools. Such schools generally re- 
quire male teachers, and the remuneration which they offer to young 
men does not compare very favorably with what young men of like 
education can obtain in other pursuits. Recognizing this situation, 
the legislature of 1906 provided for some increase in salary for rural 
teachers, and it is hoped that better success will attend the opening 
of rural schools in September. 

As time progresses there is a marked improvement in the work of 
the upper grades and in that of the secondary schools. This is due 
to the fact that they are dealing more and more with scholars who 
have been long enough under the present system of instruction to 
give them a proper and harmonious preparation. The commence- 
ment exercises of the normal school at Eio Piedras, the high schools 
at San Juan and Ponce, and the industrial school at San Juan gave 
evidence of increasing numbers and higher attainments. The record 
of the examinations held by the department of education for eighth- 
grade diplomas and for licenses as rural teachers gave abundant 
evidence of better preparation in the increased percentage of suc- 
cessful applicants. 

Special attention has been given in the past year to the matter of 
industrial training in the three schools at San Juan, Ponce, and 
S. Doc. 135, 59-2 3 



34 POETO RICO. 

Mayaguez. These schools have been brought into closer touch with 
the department of education, and every effort has been made to give 
the schools a thoroughly practical character. In some quarters it 
has been felt that progress in this direction might be more rapid. 
Plans for the reorganization and improvement of the schools are now 
under consideration by a commission appointed for this purpose by 
the last legislature. 

Agricultural education has received a notable impulse by the school 
at Rio Piedras under the management of the board of trustees of the 
University of Porto Rico. Its pupils are all boarding pupils, who 
receive instruction and subsistence free of cost. In part compen- 
sation for these benefits they spend the entire morning in farm work, 
the afternoon being devoted to theoretical instruction. The farm is 
nearly 100 acres in extent. About half of it has been brought under 
cultivation. A good share is planted in pineapples and some minor 
crops, and the remainder is pasture land for the maintenance of 
cattle. Pineapples and the dairy are the main interests of the farm, 
but other crops are grown for the instruction of the pupils. The 
course is contemplated for three years. Some of the boys who have 
left the school, though they are not to be considered as graduates, 
have already secured good positions as farm managers. The school 
has accommodations for 28 pupils. In the coming year its capacity 
will be increased to 42. 

In the town schools of the island great progress has been made in 
English in the past year. In town schools the movement is toward 
making English the medium of instruction instead of a mere subject 
of study. The result is a far better acquaintance with the English 
language and a far greater ability in its use and conversation. The 
movement began by placing the English teachers in charge of grades. 
This would have meant an increase in the number of American 
teachers had it not been for the fact that a large number of the Porto 
Rican teachers were preparing themselves to teach in the English 
language. Experience shows that there is no loss of time in teaching 
in the English language, since the attention which the child must 
give to the language is fixed unconsciously upon the subject-matter, 
and progress is quite as rapid as where Spanish alone is used. This 
movement toward the use of English has always been of local origin. 
The department of education has had to restrain it, not to stimulate 
it. Wherever adopted it has given satisfaction, and no demands have 
arisen for a return to the old system. The number of grades taught 
wholly or partly in English in December, 1905, was 165, of which 
77 were under American teachers and 88 under Porto Rican teachers. 

For the past two years special attention has been given to securing 
the largest possible attendance. It is clear that the number of chil- 
dren reached by the school system depends not only upon the number 
of children in school but the rapidity with which after receiving 
instruction they give place to others. If a country school has a 
maximum capacity of 50, and each child who enters stays three years, 
in the course of six years 100 children could be educated. But if 
every child stayed six years only 50 children could be educated. The 
course of study for rural schools is based upon three years' instruction. 
Only when the majority of the children finish their studies in the 
appointed time can the school develop its maximum efficiency. 




RECENTLY ERECTED GRADED SCHOOL, SANTA ISABEL. 




RECENTLY ERECTED RURAL SCHOOL, JUANA DIAZ. 



POETO RICO. 



35 



PUBLIC LANDS. 

Until the last session of the legislative assembly there was no 
appropriation for the survey of public lands, and in consequence 
their location has not been determined with any degree of accuracy. 
Last winter an allotment of $5,000 was secured for the location and 
classification of public roads and lands. At the next session I shall 
endeavor to have this amount increased and provision made for the 
sale of public lands to purchasers in small lots on easy terms, thus 
giving an opportunity to a number of laborers to become landowners. 

TELEGRAPH SERVICE. 

The public telegraph system in the island is under the administra- 
tive control of the commissioner of the interior. Up to the present 
time this system has been operated at a financial loss, owing chiefly to 
the large amount of free messages allowed. Efforts are being made 
to reduce the expenses and to increase the receipts, and it is hoped 
that at the end of the present fiscal year, we will be able to report a 
profit. In some towns, where the telegraph is but little used, tele- 
phones, connected with telegraph offices in other towns, have been 
substituted. A readjustment of salaries has been made, and the price 
of messages has been increased to 25 cents for 10 words. During the 
last fiscal year 105 kilometers of line were built and 400 new poles 
purchased. 

PUBLIC HEALTH. 

With the exception of a slight epidemic of measles, which was 
promptly suppressed, the island has been particularly free from con- 
tagious diseases during the past year. Great care had to be exer- 
cised during the yellow-fever epidemic in New Orleans last summer, 
to prevent the introduction of the disease into Porto Rico, but owing 
to the vigilance exercised by the officers of the Marine-Hospital Serv- 
ice the result was accomplished. 

Although much still remains to be done, the sanitary conditions of 
the island are steadily improving. It has been found difficult to 
impress upon officials of the municipalities the necessity of enforcing 
the sanitary regulations, although improvement is to be noticed 
among the larger towns. During the past fiscal year the death rate 
has been 23.26 per thousand, 0.53 per thousand more than the pre- 
vious year. The following table shows the death rate per thousand 
since the American occupation. 



Year. 


Annual 

rate per 

1, 000. 


Year. 


Annual 

rate per 

1,000. 


1898-1899 


35.70 

41.00 

' 40. 38 

24.62 


1902-3 


26 27 


1899-1900 


1903^1... 


22 69 


1900-1901 


1904-5. . 


22 73 


1901-2 


1905-6 


23 26 









During the ten years prior to American occupation, from 1888 to 
1897, the death rate varied from 24.6 to 34.4 per thousand, the aver- 
age being 29.6. Although it is possible, by the introduction of more 
advanced sanitary precautions, to reduce the death rate in Porto Eico, 
it is not excessive for a tropical island. The average rate for the 



36 PORTO RICO. 

years 1896 to 1904 was 22.1 per thousand in Jamaica, an island lying 
in the same latitude and approximately the same size as Porto Rico, 
although with considerable less density of population, while the death 
rate of residents of the city of Manila for the year ending August 31, 
1905, reached 40.58 per thousand. 

PUBLIC INSTITUTIONS. 
BLIND ASYLUM. 

The blind asylum in Ponce was opened on the 23d of September, 
1905. In the ensuing nine months the institution has received 173 
patients, of whom 108 have been discharged as cured. It was thought 
wise in the beginning to give preference to cases which could be cured 
by medical and surgical treatment rather than to provide a home for 
the permanent blind. This accounts for the large percentage of the 
patients discharged as cured. As time goes on the indigent per- 
manent blind will be afforded a home, and less space allotted to those 
curable. The entire staff of the hospital consists of Porto Ricans, 
and its success thus far has been due to their interest and untiring 
efforts. 

INSANE ASYLUM. 

Improvements have been made in the insane asylum by adding a 
wing of the building formerly assigned to the central high school 
and by certain necessary repairs. The inmates number 242, of whom 
22 are pay patients. It will be necessary to increase the appropria- 
tion for the care of the pauper insane, it being at present too small to 
support the entire number of insane in the island. The institution is 
admirabty conducted and will compare favorably with any institution 
of like size in the United States. 

boys' charity school. 

This school accommodates on an average 270 inmates between the 
ages of 6 and 16 years. On reaching the latter age they are obliged 
to leave the institution, although at times considerable delay is 
involved owing to the fact that the parents or guardians of the boys 
are too poor to support them and situations are not at once available. 
The industrial features of this school will be extended, so that every 
boy leaving will be able to earn his livelihood. 

girls' charity school. 

This school, which shelters 168 inmates, has done commendable 
work during the past year. An effort will be made to provide a 
market for the lace work, drawn work, embroidery, baskets, hats, etc., 
which the girls make by sending samples to the commercial agency in 
New York. Upon leaving the institution each girl will receive a 
small amount of this fund for her temporary support. 

LEPER COLONY. 

There has been an increase in the patients in the leper colony on 
the island of Cabras, and at present there are 25 inmates. Apart 
from their disease, the general condition of the inmates is excellent, 
and the location of the hospital most healthy. It will be necessary 



POETO RICO. 



37 



in the near future to extend this institution somewhat by the con- 
struction of cottages for patients under observation, and the necessary 
repairs to buildings already in existence. 



PRISONS. 



A new district jail at Arecibo has been built, and convicts will be 
transferred to this building within a few days. In addition, the 
penitentiary has been considerably enlarged, and permission secured 
for the use of the lower floor of the large military barracks in Maya- 
guez for a district jail. The jails throughout the island are generally 
in good condition, although it is advisable to construct new buildings 
in one or two districts to be used in place of those at present rented. 
The number of insular prisoners on June 30, 1906, was 201 less than 
on the same day in 1905. The building formerly used as a district 
jail in Puerta de Tierra, a suburb of San Juan, was purchased from 
the city of San Juan at public auction by the Porto Rico American 
Tobacco Company for the purpose of a factory, and the insular gov- 
ernment was, in consequence, obliged to vacate this building at the 
termination of its lease, June 30, 1906. 



UNCINARIASIS. 



The Porto Eico Anemia Commission, created by the legislative 
assembly of 1904 and continued by that of 1905, gave such striking 
proof of the value of its work and" of the possibility of permanently 
curing those suffering from the disease known as uncinariasis that it 
has been made a permanent part of the organization of the insular 
government. The commission, as originally appointed, was com- 
posed of Dr. Bailey K. Ashford, U. S. Army, Dr. W. W. King, U. S. 
Public Health and Marine-Hospital Service, and Dr. Pedro Gutierrez 
Igaravidez. The work of the commission in its first year proved so 
successful in the treatment of some 4,500 cases, at an expenditure of 
$5,000, that the legislature in the following year appropriated the 
sum of $15,000, and the same commission was reappointed. During 
the past year the commission made its headquarters in the city of 
Aibonito, where it established a tent hospital of 60 beds for patients 
who were too ill to return to their homes after receiving treatment. 
In addition to the central station, 9 sub-stations were located in the 
different parts of the island especially afflicted by the disease. 

During the first years many of the physicans were inclined to be 
skeptical of the results that could be accomplished, but after the suc- 
cessful showing made bv the commission with the small sum at its 
disposal, all cooperated heartily and enthusiastically in the work of 
stamping out this disease. An active campaign of instruction as to 
methods of prevention was carried on at the same time that cures were 
being effected, and although a great number of peasants in the 
afflicted districts are unable to read or write, these instructions 
rapidly passed from one to another by word of mouth. 

From July to February over 22,500 cases were treated at the 
various stations throughout the island, in addition to those treated by 
private physicians. It was found that the average cost of medicines 
per patient was but 33 cents, although the expense of administration 
and the care of the sick in the hospitals, if included, would slightly 
increase this amount. 

The disease is caused by an intestinal parasite, uncmana, commonly 



38 PORTO RICO. 

known in parts of the United States as " hookworm." As a result 
of two years' investigation, the commission reached the conclusion 
that in practically every case the parasite effected its entrance into 
the body through the penetration of the skin in contact with soil or 
water loaded with the young larvae. These larvae can not reproduce 
their species in the human body, although the female worm deposits 
the eggs in the upper part of the small intestine. In other words, 
every ovum laid must pass to its full development outside of the 
human body. The multiplication of uncinarise contained in an 
infected individual is therefore impossible. Thus if a man has 100 
such parasites, he will never have any more until he is infected from 
without. This is most important when taken in connection with the 
prevention of uncinariasis, and is in sharp contrast to other infectious 
diseases. 

In view of the fact that probably 90 per cent of the rural popu- 
lation of the island is affected bv this disease, the legislative assembly 
of last year determined to institute a comprehensive campaign, and 
appropriated the sum of $50,000 for this work. Much to its regret, 
the Government has lost the services of Doctors Ashford and King, 
who, after a residence of several years in the island, were ordered to 
stations in the United States. To these two surgeons is due a grate- 
ful acknowledgment for the. earnest and unselfish efforts they have 
shown, and for their vigor and energy in initiating a work which 
promises to be among the most important undertaken since the 
establishment of American sovereignty. The third member of the 
commission, Dr. Pedro Gutierrez Igaravidez, who had demonstrated 
his ability and competence during the two previous years, has been 
appointed chairman of the commission. He will be assisted by Dr. 
Francisco Sein and Dr. Isaac Gonzalez Martinez, both Porto Eican 
physicians of prominence. It is the intention of the commission to 
divide the island into three districts, each to be under the supervision 
of a member of the commission. Stations will be established in the 
most important towns, and substations in the surrounding country. 

The effect of cures is especially noticeable in the increased ca- 
pacity for work which convalescents display after undergoing treat- 
ment. Enlightened employers of labor realize the importance of 
caring for the health of their employees, and one large company has 
volunteered to pay the services of a physician to be stationed near 
its headquarters and under the supervision of the commission. 

For a more technical and detailed description of the work and 
the nature of the disease, I call attention to the interesting reports 
recently published by the commission. 

MUNICIPALITIES. 

The past year has been marked by a slight but steady improvement 
in the condition of the municipalities of the island. Hardly more 
than two or three are in serious financial difficulties, and a few have 
closed the fiscal year with a balance. Those municipalities which 
were recreated in 1905, after having been abolished by the act of 1902, 
for the most part have supported their separate existence without diffi- 
culty and to the satisfaction of their inhabitants. 

The matter of the greatest interest pertaining to municipalities 
during the past year was the action of the legislature in revising the 



PORTO RICO. 



39 



municipal law. The legislature of 1905 provided for a ]omt commis- 
sion of both houses to sit during the summer for the purpose ot study- 
in o- thp question of local government for the island. This commission 
met during the month of August, 1905, and after a session of three 
weeks prepared a bill providing for a system of seven counties, to 
which should be entrusted the administration of all matters per- 
taining to local sanitation, education, and the care of the county roads. 
It also recommended many important changes in the municipal law. 
The legislature, however, rejected the proposition to establish coun- 
ties, but revised the municipal law along the lines recommended by the 
commission. A detailed analvsis of the municipal law will be found 
in the report of the secretarv, but in the main the new law grants a 
greater amount of initiative to the municipalities and does away with 
the necessity of securing the approval of the executive council to a 
certain class of ordinances of municipalities. It also encourages 
recourse to the courts against any improper municipal action, rather 
than appeal to administrative action by the central government, lho 
law very clearlv defines the powers and duties of the municipal officers 
and municipaf councils, and gives a wide range of discretion withm 
those limits. It also provides checks against undue expenditures ol 
municipal funds, restricting the yearly appropriations to the amount 
of the actual income of the municipality for the prior fiscal year. 

The insular government has made a number of small loans to 
various municipalities for public improvements, or for the purpose ol 
refunding debts at a lower rate of interest. These loans seldom 
exceed $10,000 in amount, and are to be repaid usually -in from three 
to five years, with interest at 3 per cent. With the more prompt pay- 
ment of taxes, owing to the greatly improved condition of the country, 
it is hoped that before many years all municipalities will be out of 
debt and easily able to meet all expenses. 



INSULAR POLICE. 



The legislature during the past session increased the maximum 
number of insular policemen from TOO to 850, and created a new 
police district. At the same time additional pay and service stripes 
were granted. This provision will do much to improve the morale of 
the police, and to insure the reenlistment of the best element in the 
force. It is not anticipated that it will be necessary to employ the 
full number of 850 men, except in case of emergency. In all proba- 
bility the number employed on ordinary occasions will not exceed 700. 
The entire duty of maintaining order on the island devolves upon the 
insular police, the municipal police having been abolished in 1904. 
The organization has attained a high degree of discipline, and the 
activity and energy displayed by both officers and men is worthy of 
the highest commendation. 



FEDERAL BUILDING. 



At the last session of Congress provision was made in the public 
buildings bill for the construction of a Federal building at San Juan, 
at a cost not to exceed $300,000, for the use of the United States dis- 
trict court, the post-office, custom-house, immigration department, 
weather bureau, and other branches of the Federal Government now 
established in San Juan. This building is greatly needed, and its 



40 PORTO RICO. 

prompt construction will afford more suitable quarters for the vari- 
ous branches of the Federal Government than those which they at 
present occupy. I hope that provision will eventually be made for 
the construction of Federal buildings in the towns of Ponce and 
Mayaguez. 

CONCLUSION. 

In conclusion, I desire to renew most earnestly the recommenda- 
tions T made last year that United States citizenship be conferred 
upon Porto Ricans. At the last session of Congress laws for this 
purpose were introduced in the Senate and the House of Representa- 
tives, and favorably reported by both the committees to which they 
were referred, but unfortunately Congress adjourned Avithout taking 
any action. The information that these laws had been presented and 
favorably reported was received with much enthusiasm by the people 
of Porto Rico, who were correspondingly disheartened when no 
action was taken. The uncertainty of their status creates the very 
natural feeling that they have not been justly treated. Not only is 
legislation on this subject desired by Porto Ricans, but it is heartily 
recommended by every American member of the Administration. The 
matter is of the greatest importance, and every delay in conferring 
citizenship will only detract from the favorable impression which 
would have been created by an early recognition of Porto Rican 
aspirations. 

I desire also to renew my recommendation that some bureau or 
division of the central government in Washington be designated as 
the representative of the insular government in the same way that 
the Bureau of Insular Affairs at the present time represents the Philip- 
pine administration. Such a course would be beneficial in providing 
an office which could furnish information without delay to officials 
and others interested in the affairs of Porto Rico; and if the same 
office was designated to act for the Philippines, Porto Rico, Hawaii, 
Guam, etc., an opportunity would be afforded the officials in one of 
our insular possessions to benefit by the experience gained in the 
others. It would also insure a uniform policy of administration, 
the value of which can not be overestimated. 

To sum up, the most important points on which I recommend 
action by Congress are : 

(1) That an import duty be levied upon foreign-grown coffee. 

(2) That United States citizenship be conferred upon Porto 
Ricans. 

(3) That the harbor of San Juan be dredged and improved. 

(4) That a bureau or office of the central government at Washing- 
ton be designated to represent the insular administration. 

(5) That the delegates to the legislative assembly of Porto Rico 
be elected every four years instead of every two, as at present. 

(6) That the expenses of the Federal court of Porto Rico be met 
from Federal funds. 

I beg to attach herewith the reports of the heads of the different 
executive departments. 

I have the honor to be, sir, your obedient servant, 

Beekman Winthrop, 

Governor. 
The President. 

(Through the Secretary of State, Washington, D. C.) 



Exhibit A. 

REPORT OF THE SECRETARY OF PORTO RICO. 

Office of the Secretary of Porto Rico, 

San Juan, July i, 1906. 
Sir : I have the honor to submit the report of the secretary of Porto 
Rico for the fiscal year 1905-6. 

elections. 

No election was held in Porto Rico during the past fiscal year, but 
at the session of the legislature the election law was entirely redrawn. 
As pointed out in my last report, the registration list of the island 
was extremely faulty, as it was based upon the registration of 1900, 
and no proper revision had ever been made of the original lists. 
The list showed 225,000 voters, while at the closely contested election 
of 1901 only 143,000 votes were cast. The census of 1899 places the 
number of males of voting age at 201,000, which is more nearly cor- 
rect than either of the above figures. Moreover, during the elections 
of 1902 and 1901 many conflicts and doubtful passages were dis- 
covered in the law. and it was deemed advisable to redraft the entire 
law in the light of past experience, so as to provide for a new regis- 
tration, and more specifically define the conduct of the election. 

Bipartisan registration boards were established in every munici- 
pality of the island, and every elector who desires to vote is required 
to appear before the board personally and give his name, age, and 
residence before being registered. The boards issue certificates of 
registration to each elector, and the registry lists are made up by 
the central office in San Juan for every municipality of the island. 
Ample time is provided, so that everyone may have an opportunity 
to register. At the present writing over 95,000 electors have been 
registered, without serious difficulty of any kind. 

It is possible that this registration may be made the basis of a per- 
manent registration list for each municipality, which, by continual 
revision by a permanent board, may be kept accurate without the 
necessity of a new registration every two years. 

The method of making nominations, both by convention and by 
petition, has been more clearly defined in the new law, with the pur- 
pose of obviating the difficulties pointed out in my last report. As- 
surances must be given that the candidates named are willing to run, 
and to serve if elected, and in the case of nominations by petition, 
the signatures attached must be verified by the certificate of registra- 
tion of the signer. 

The new law is absolutely bipartisan in character, and provides 
for an inspector and poll clerk from each of the two principal par- 
ties, at every polling place on the island, eliminating the advantage 

41 



42 POKTO RICO. 

which accrued to the party which had a majority of the electoral 
officials, which was one of the sources of complaint in the old law. 

The Australian ballot was retained. As three elections have now 
been held under this system, the voters are becoming accustomed to 
it, and it was deemed wiser not to attempt to adopt a new sj^stem, 
although objections exist to the use of the Australian ballot when so 
many electors are unable to read and write. 

The legislature also provided, at the last session, a special pro- 
cedure in cases of contested elections. This should prove one of the 
best preventatives of fraud. The fact that a fraudulent election 
may be set aside by the courts will render fraud not only dangerous 
but useless, and will act as a more powerful deterrent to improper 
action than the penalties of the penal code. 

LEGISLATION. 

At the second session of the third legislative assembly 68 laws 
were passed. The two matters of widest interest were the revision 
of the municipal law and the new registration and election law. The 
discussion of these laws, which have been more fully explained under 
the heads of elections and municipalities, occupied much of the time 
of the session. 

The question of public roads for the island received much atten- 
tion at this session and as a result a bill was passed authorizing the 
treasurer of Porto Rico to issue bonds of the island to the amount of 
$1,000,000, the proceeds of which are to be spent solely for the con- 
struction of roads and bridges, under the direction of the commis- 
sioner of the interior. An appropriation of $50,000 was also made 
for the completion of certain public roads already begun, for which 
the appropriations and allotments originally made have been found 
inadequate. An appropriation of $15,000 was made for the extension 
of the insular telegraph system by means of telephones to the smaller 
towns and villages. A permanent commission was established to 
carry on the work of the suppression of ansemia in Porto Rico, and an 
appropriation of $50,000 was made for the purpose. 

Many laws were passed affecting judicial procedure, for the most 
part making necessary amendments in the statutes and codes. One 
of the most important was a new law in regard to contested election?. 
Amendments were made to the regulations for admission to the bar 
and in regard to the practice of notaries in Porto Rico. A code com- 
mission, consisting of three members appointed by the governor, wa°- 
provided for, to take up the much-needed work of codifying the laws 
of the island. Two judges were authorized for the judicial district 
of San Juan instead of one, made necessary by the large amount of 
work in this district. 

The commission heretofore created to settle the claims of the late 
departmental boards of prison control was granted fuller powers in 
making settlements, and authority to certify amounts found due to 
the treasurer of Porto Rico for deduction from municipal funds. 
The commission was also authorized to take charge of the settlement 
of the claims of the board of trustees of the teachers' pension fund. 
The work is being carried on as rapidly as possible and it is hoped 
that nearly all the claims will be finally adjusted before the next 
session of the legislature. 



POETO KICO. 43 

MUN ICIP ALITIES . 

During the past fiscal year the financial condition of the munici- 
palities continued to improve. This is largely due to the fact that 
the agricultural interests are becoming more prosperous and better 
able to pay the real-estate tax, which is the practical source of income 
to the municipalities, but it is equally true that the municipal 
administrations are every year becoming more accustomed to their 
duties and more familiar with the needs and resources of their towns. 

A complete statement of the financial condition of the municipali- 
ties in tabulated form will be found in the report of the treasurer, 
from which it will be seen that the floating indebtedness of the mu- 
nicipalities has been greatly decreased. Many municipalities have 
taken advantage of the provision of law which permits them to bor- 
row money of the insular government, and during the past year the 
school boards of 14 municipalities have availed themselves of the 
privilege of obtaining loans of the insular government, varying in 
amounts from $1,000 to $6,000. A complete list of these municipal 
and school loans is appended. 

There are still some few municipalities whose financial condition 
is unsatisfactory, but as a whole, the municipal administrations show 
a desire to carry on the affairs of their towns on a sound business- 
like basis, and an inefficient administration has become the exception 
on the island. 

The matter of the greatest importance to the municipalities during 
the past year was the revision of the municipal law. The legislature 
of 1905 provided for a commission of members of both houses to meet 
during the summer and consider the system of local government in 
the island. This commission, composed of seven members from 
each house, met in joint session for three weeks in the month of Au- 
gust, and studied all the questions of local government in a very 
thorough and painstaking manner. Their report to the legislature 
recommended a plan dividing the island into seven counties, which 
should have the direction of the local sanitation, education, and the 
care of the local roads. They also recommended many important 
changes in the municipal law. 

The legislature did not adopt the recommendation for the establish- 
ment of a system of counties, but embodied in a new municipal law 
the changes and reforms suggested by the commission. 

There were three great objections to the old municipal law as it 
stood : First, the necessity of reference of many municipal ordinances 
to the executive council for approval, especially those levying the 
license taxes in the various municipalities. Municipal budgets were 
based upon the schedules of license taxes, and frequently the executive 
council would disapprove the schedule, upsetting all the calculations 
of the administration. It was therefore deemed wiser by the legisla- 
ture to define clearly in the law just what taxes might be levied by a 
municipality, and the maximum amounts for which they could be 
levied, avoiding the necessity of submitting every schedule for the 
approval of the executive council. 

The second objection was to the power given to the secretary of 
Porto Rico to veto any act of any municipal officer or council. This 
power was undoubtedly extremely arbitrary, but it had been deemed 
wiser, at the time the old law was drawn, to retain administrative 
control over the acts of the municipalities and municipal officials, as a 



44 " • PORTO RICO. 

more speedy method of correction of improper action than recourse 
to the courts. Although I believe in the past the secretary's office 
has always endeavored to use this power with discretion, and rarely 
vetoed an action unless it was deemed either illegal or dangerous to 
the welfare of the community, yet at the same time it perpetuated 
the old idea of appeal to the administrative powers rather than to the 
courts and led to innumerable unfounded complaints. Therefore, 
in drawing the new law this veto power of the secretary was elim- 
inated, but provision was made that the attorney-general might ap- 
pear against any municipal authorities in any matter where their 
action was illegal and the office of the attorney-general was placed 
at the disposition of the municipalities for legal advice. It will take 
some time to overcome the habit of years of appealing to the governor 
or to the administrative authorities, but I believe that it is a long 
step toward self-government to instruct the people that their pro- 
tection is in the courts and at the polls against any illegal or arbitrary 
act on the part of a municipal administration. 

Third. The system of drawing municipal budgets under the old 
law was open to much criticism, as has been pointed out in previous 
reports. Under those provisions appropriations might be made to 
an amount equal to the assets of the municipality. This led to the 
inclusion among the assets -of old outstanding debts and taxes which 
could never be collected, and the estimates of taxes for the current 
year would be put in without making allowance for the proportion 
of taxes remaining uncollected, which caused, in many cases, large 
deficits at the end of the year. The whole system of framing munic- 
ipal budgets was therefore carefully defined in the new law, and a 
limit placed on the total amount which could be appropriated for any 
fiscal year at the amount of the actual income of the municipality 
for the preceding fiscal year. 

EXECUTIVE COUNCIL. 

In addition to the legislative session of sixty days, the executive 
council met in executive session 59 times. Early in the year the 
custom was adopted of having a regular day each week for the meet- 
ings, and since then the council has met every Thursday afternoon at 
3 o'clock. 

During the past fiscal year the council investigated and approved 
the applications of the following municipalities for loans from the 
insular government, in the amounts stated : 

Vega Alta $1,000.00 I Coamo $2,000.00 

Adiuutas 15,000.00 I Lares 12,000.00 

Riiicon 2, 643. 4!) i Juana Diaz 6,000.00 

Aguadilla 12,000.00 i Patillas 2.000.00 

Naguabo : 3,000.00 Aguada 4.000.00 

San Juan 15,000.00 Aibonito 10,000.00 

Arroyo 4,200.00 

Loans were also approved by the executive council from insular 
funds to the school boards of the following municipalities : 

Camuy $3,000 

Hatillo 3,000 

Lares 5,000 

Coamo 6,000 

Rio IMedras 3,500 

Naguabo 1,000 

Toa Baja 3,000 



Asaiada $1,000 

Arecibo 1.006 

Aguadilla 1,500 

Anaseo 2,000 

Sabana Grande 1.200 

San German 2,000 

Manati 1,200 



POETO RICO. 



45 



The executive council has considered, during the past fiscal year, 
the following franchises and applications therefor. The action taken 
in each case is indicated on the following list : 

Port America Company.— Franchises to construct various lines of railroad in 
Porto Rico. Revoked by council, August 4, 1905; approved by governor, 
August 22, 1905 ; approved by President, October 1, 1905. 

Ponce Railway and Light Company.— Application for amendment of franchise, 
reducing royalties ; denied by council, May 10, 1906. 

American Railway Company, successors to the Compania de los Ferrocamles 
de Puerto Rico.— Application for amendment allowing extension of track 
along the Utuado road. Granted, March 16, 1906; approved by governor, 
March 20, 1906; approved by President. April 19, 1906. 

Transfer of right of Percy Saint, in franchise granted to himself and Miguel 
Porrata Doria to exploit mines in the island of Caja de Muertos, transferred to 
Miguel Porrata Doria. Approved December 14, 1905, as of December 13, 1904. 

B J Horton —Franchise to construct and operate long-distance telephone 
lines in Porto Rico. Revoked by council, April 19, 1906; revocation approved 
by governor, May 25, 1906 ; approved by President, June 26, 1906. 

Percy Saint and W. D. Noble.— Franchise to exploit mines on the island of 
Mona, transfer authorized to Mona Island Phosphate Co. (Limited). Granted 
by council, December 21, 1905 ; approved by the governor, January 8, 1906. 

Antonio Roig.— Franchise to operate a line of railroad between Humacao and 
Humacao Playa. Granted by council, August 8, 1905; approved by governor, 
August 9, 1905 ; approved by the President, August 30, 1905. 

A. L. Arpin.— Application for franchise to develop the power of Comerio 
Falls. Denied August 8, 1906. 

Ramdn Valdes.— Application for franchise to develop the power of Comerio 
Falls. Denied, August 8, 1905. . 

Miguel Porrata Doria.— Transfer of rights in claim for mining rights m Mona 
Island to Mona Island Phosphate Co. (Limited). Authorized, December 21, 
1905 ; approved by governor, January 8, 1906. . 

Florensan & Trublard.— Petition for rigbt to use certain public lands in 
Lajas. Recommendation of committee for denial, June 21, 1906. 

J. a. White & Co.— Application for franchise to develop tbe power of Comerio 
Falls. Denied, August 8, 1905. 

San Juan Light and Transit Company.— Application for franchise to delevop 
the power of Comerio Falls. Denied, August 8, 1905. 

Fijardo Development Company. — Franchise to build and operate a railway 
between Mameyes and Naguabo. Granted, October 27, 1905; approved by tbe 
governor, November 12, 1905; approved by the President, December 11, 1905. 

American Railroad Company of Porto Rico.— Application for right to receive 
title to certain lands in the city of San Juan. Denied, with recommendation for 
submission to legislature, August 4, 1905. 

American Railroad Company of Porto Rico.— Application of lease for lands in 
the city of San Juan. Denied, April 5, 1906. 

Juan Cortada, Ponce. — Franchise for right to use water from the Descala- 
brado River for irrigation. Granted, July 14, 1905 ; approved by governor, July 
22, 1905. 

Diaz y Benitez, Fajardo.— Application for right to construct telephone line to 
connect their estate and Fajardo. Referred to committee, July 3, 1905. 

Henry F. Hord.— Franchise to build and operate a trackless trolley road over 
certain insular highways. Granted, August 8, 1905. 

The Commercial Lighter Company, Ponce. — Application for permission to 
move their pier. Referred to Washington, August 4, 1905. 

A. Figueras. — Application for permission to construct road for transportation 
of cane in Cambalache. Filed July 14, 1905. 

Roig-Gay Co., S. en C, Juncos.— Application for permission to construct road 
for transportation of cane in Juncos. Referred to committee July 17, 1905. 

Mayor of Ponce. — Transmits memorial of the municipal council requesting 
permission to extend Montana street through lands of the insular government. 
Denied September 28, 1905. 

Finlay Brothers and Weymouth Trading Company. San Juan. — Franchise to 
build railroad in Alta Vega and Dorado. Granted October 27, 1905 ; approved 
by governor October 30, 1905 ; approved by President November 18, 1905. 

Amalio Pereira, Juncos. — Franchise to use water from the Valenciano River. 
Granted December 21, 1905 ; approved by governor January 8, 1906. 



46 PORTO RICO. 

Martin <£ Co. — Application for right to use insular telegraph line poles be- 
tween Manati and Hato Viejo. Denied October 26, 1905. 

Manuel Blasquez. — Application for franchise to build road for transporta- 
tion of cane along highway between Manati and Ciales. Denied by council 
December 7, 1905. 

Rangel & Verges. — Franchise for right to use water from the brook Greo. 
Granted February 14. 1906; approved by governor February 14, 1906. 

Antonio Monroig 6 Hijos. — Right to take water from Bayamon River. 
Granted February 14. 1906 ; approved by governor February 17, 1906. 

Central San Cristobal. — Franchise for right to construct railroad between 
Naguabo and Naguabo Playa. Granted (with conditions) May 29, 1906. 

Porto Rico Power and Light Company. — Bid for franchise to develope power of 
Comerlo Falls. Accepted and granted by council January 4, 1906 ; approved 
by governor January 8, 1906. 

Eugui & Co. — Franchise to take water from Gurabo River. Granted March 
16, 1906 ; approved by governor March 20, 1906. 

Tieente Usera. — Application to have revocable permit of the commissioner of 
interior made permanent. Denied by council January 15, 1906. 

Balseiro d- Georgetti, Barceloncta. — Franchise to build wooden bridge over 
Manati River. Granted February 3, 1906 ; approved by governor February 8, 
1906. 

Providencia Central Company. — Right to operate private telephone line 
between its central and Arroyo ; reported as unnecessary. Application renewed 
May 8, 1906. 

R. Caballero, Salinas. — Right to use water from stream on his property in 
Salinas. Granted June 21, 1906 ; approved by governor June 23, 1906. 

Ponec Railway and Light Company. — Application for permission to use por- 
tion of tracks of American Railroad Company in Ponce. Granted December 14, 
1905 ; approved by governor December 16, 1905 ; approved by President Jan- 
uary 10, 1906. 

Guanica Central. — Application for permission to lay siphon below the river 
Estero. Granted April 3, 1906 ; approved by governor May 25, 1906. 

Eugui & Co., Gurabo. — Right to build wooden bridge over Gurabo River 
Granted April 24, 1906 ; approved by governor May 25, 1906. 

Gerardo Soler. — Right to use water from Plata River in Toa Baja. Granted 
April 25, 1906; approved by governor May 25, 1906. 

Juan Pons y Coldn, Aibonito. — Application for telephone franchise. Denied 
April 3, 1906. 

Porto Rico Power and Light Company. — Franchise to build electric road 
between Rio Piedras and Caguas. Application referred to committee Feb- 
ruary 16, 1906. 

Henry D. Sayre. — Application for right to use the waters of Congo Creek, in 
Corozal. Referred to committee February 17, 1906. 

Corozal Mining Company. — Application for right to use waters of Corozal 
Creek. Referred to committee February 17, 1906. 

Henry D. Sayre. — Application for franchise to use waters of Negros Creek 
in Corozal. Referred to committee February 17, 1906. 

Ponce Railway and Light Company. — Application for right to lay branch 
track in Ponce. Granted April 19, 1906 ; approved by governor June 9, 1906. 

Santiago Sambalin. — Application for permit to lay portable track on road 
from Mayaguez to San German during the grinding season. Denied April 5, 
1906. 

Compagnie de Sucreries of Porto Rico. — Franchise to construct railroad from 
Ponce to Coamo Springs. Granted June 4, 1906 ; approved by governor June 4, 
1906 ; approved by President June 21, 1906. 

Robert A. Miller. — Application for right to use water from Quebrada del 
Agua, in Peiiuelas. Referred to committee April 2, 1906. 

Ponce Railway and Light Company. — Application for right to operate a 
branch track on Leon street, in Ponce. Referred to committee April 6, 1906. 

American Railroad Company of Porto Rico. — Application for permission to 
construct and maintain wharves and docks in the harbor of Mayaguez. Re- 
ferred to committee April 6, 1906. 

Municipal Council of Aibonito. — Application for permission to use the waters 
of the brook Covacha for municipal aqueduct. Granted May 10, 1906 ; approved 
by governor May 25, 1906. 

Conrado Diaz, Santa Ysabel. — For permission to use the waters of the river 
Jueyes for irrigation. Referred to committee April 27, 1906. 



PORTO RICO. • 47 

Berio Hermanos, Corozal. — Application for right to use water from the 
Manati River for irrigation. Referred to committee April 27, 1906. 

Carlos Conde Casariego. — Application for permission to use certain lands of 
the insular government lying on the north side of the harbor of San Juan for 
construction of wharf. Referred to committee May 19, 1906. 

William C. Lockicood, San Juan. — Application for certain mining rights on 
government lands near Guanica. Referred to committee May 25, 1906. 

Porto Rico Leaf Tobacco Company, San Juan. — Application for franchise to 
construct and operate a railroad between San Juan and Caguas, through Rio 
Piedras and Carolina. Filed May 28, 1906. 

Luciano Orta, Ponce. — Application for right to use water for irrigation from 
stream on his property in Jayuya Arriba. Filed June 27, 1906. 

BUREAU OF PRINTING AND SUPPLIES. 

On April 1 of the past fiscal year the bureau of printing and sup- 
plies was removed from the office of the auditor of Porto Rico and 
placed in charge of the secretary. The force, when this change was 
made, consisted of a chief of the bureau and public printer, a chief 
clerk, and an accountant. 

On July 3, 1905, the acting secretary, at my request, wrote to the 
auditor of Porto Rico requesting him to make a thorough examina- 
tion of the bureau of printing and supplies, checking up the stock and 
cash, and also requesting such recommendations as the auditor might 
see fit for the improvement of the system of bookkeeping, etc., in the 
bureau. This the auditor kindly consented to do, and made a long 
and painstaking inventory and examination, which extended over 
nearly the whole summer, and on September 19 he forwarded to me 
his report, together with the inventory. This report stated that the 
system of bookkeeping in the bureau was not sufficiently accurate, but 
made no specific recommendations as to any change or system to be 
adopted. Therefore, on the same date, September 19, I requested 
the commissioner of education to permit the chief of the division of 
property and accounts of his department, Mr. C. O. Lord, to install 
the system used in his division of the department of education in 
the bureau of printing and supplies, as I believed that to be the most 
perfect system possible both for the bookkeeping, the placing and 
checking of orders, and accounting for the stock on hand. The com- 
missioner of education courteously granted this permission, and the 
chief of his division proceeded to install the system in the printing 
bureau and to instruct the chief clerk in the methods of carrying it 
out, and explicit orders were given the chief of the bureau to see that 
this was done. Becoming convinced that affairs were again in an 
unsatisfactory condition, I requested the commissioner of education. 
on December 14, to again permit his chief of division of property 
and accounts to make an official investigation and report as to the 
manner of carrying out his system in the printing bureau. Mr. Lord 
reported to me on December 18 that the system was not being carried 
out; that my orders had been disregarded, and that affairs were in 
a very unsatisfactory condition. I immediately made a thorough 
personal examination of the books and general conditions, which fully 
corroborated the report. 

The bureau was then reorganized as promptly as possible. I ap- 
pointed Mr. S. M. Hyde, an employee of the secretary's office, as chief 
of the bureau, and made him responsible for the entire work of the 
bureau. The former chief clerk was discharged and his place was 
not filled. The former chief of the bureau was reduced from his 



48 • POETO RICO. 

position and made foreman in charge of the purely mechanical work 
of the press room. Later evidence came to light that this man had 
acted as agent for a firm with which the bureau dealt, and had trans- 
acted business for it with various printing establishments in San 
Juan. As this was a clear violation of the governor's order in regard 
to these matters the man was discharged. 

Since the 1st of January, when Mr. Hyde formally took over the 
work of the bureau, its condition has been much more satisfactory. 
It has been my desire, in carrying out the mechanical work, to 
employ as little salaried help as possible, taking on workmen tempo- 
rarily as the business demands. I believe this to be more economical, 
and it is authorized by the terms of the appropriation act. 

When, on July 1, 1904, the rule was passed requiring all printing 
to be paid for by the various departments, it was the intention to 
make the bureau self-supporting. Under this system the appropri- 
ation for the purchase of supplies should be in the nature of capital 
invested, and if the bureau were run on a proper business basis at the 
end of the year the appropriation should be undiminished. The 
orders given the bureau at the time were to charge the actual cost of 
the work and materials supplied, plus 10 per cent, which percentage 
was intended to cover freight, power, light, and incidental adminis- 
trative expenses of the bureau. As a matter of fact, the appropri- 
ation at the end of the year has always been practically exhausted, 
although there was always considerable stock on hand, representing 
capital invested. I therefore, when I reorganized the bureau in 
January, gave explicit orders that the cost of each piece of work 
should be calculated with the greatest care and the full amount 
charged to the departments. It is my intention to have the bureau 
self-supporting, and have it run exactly as a private business would be 
run. I do not wish to have the bureau show a profit at the end of the 
year, but I wish to have the receipts fully cover the expenditures. 
The prices may seem slightly higher to the departments, but this is 
the only method by which it can be ascertained whether or not the 
printing bureau is an economy or an expense to the government. 

The following statement shows the transactions of the bureau, as 
submitted by the chief of the bureau of printing and supplies : 

Transactions of bureau of printing and supplies, fiscal year 1905-6. 

DEBIT. 

To cost of paper, envelopes, ink, cardboard, stationery 
and stationery supplies on band July 1, 1905 (see gov- 
ernor's report for fiscal year 1904-5) $8,923.20 

To amount paid for paper, envelopes, ink, etc., purchased 
from July 1, 1905, to June 30, 1906, for use of tbe print- 
ing office and to be issued to tbe several departments of 
tbe insular government and to municipalities upon pre- 
sentation of requisitions, and for stationery and sup- 
plies to be issued to same departments and municipali- 
ties IS, 951. 18 

To salaries of printers paid from July 1, 1905, to June 30, 

1906 14,869.38 

To incidental expenses paid from July 1, 1905, to June 
30, 1906 1,443.15 

To cost of material for and outside labor on binding books 

before bookbinding department was establisbed 366.25 

$44, 553. 16 



PORTO RICO. 49 



By receipts for printing completed and delivered, and 
stationery and supplies furnished on requisitions to the 
several departments of the insular government and to 
certain municipalities from July 1, 1905, to June 
30, 1906 $29, 707. 87 

By amounts owed by departments and municipalities 2,017.94 

By receipts for sale of old boxes and packing cases from 

July 1, 1905, to June 30, 1906 9.50 

By value of paper, envelopes, ink, stationery, and re- 
salable supplies on hand June 30, 1906 10,923.86 

$42, 659. 17 

Net loss from July 1, 1905. to June 30, 1906 1,893.99 

Valuation of plant. 

Cost of printing plant and fixtures, including cases, type stands, 
and all material necessary for the maintenance of the printing 
and supply divisions, up to July 1, 1905 (see governor's report 

for fiscal year 1904-5) $7,828.33 

Cost of machinery and type purchased in June, 1905, not in- 
cluded in report of transactions of the bureau of printing and 
supplies for fiscal year 1904-5, but paid for bv settlement war- 
rant out of the funds of that year, as follows : 

One 34-inch Brown & Carver paper cutter $531.00 

One automatic striker ruling machine 565. 00 

One 000 Monitor wire stitcher 70o! 00 

One Monitor stand power perforator 14q! 00 

One Rochester motor 65^00 

Bookbinders' outfit 960. 70 

Type, stands, and miscellaneous printing material-" 4,747,33 

■ 7 709 03 

Cost of machinery purchased from July 1, i905, to June 30, 1906, 

as follows : One No. 6 Optimus cylinder press 2, 500 00 

Cost of type, miscellaneous printing supplies, and office furniture 

purchased from July 1, 1905, to June 30, 1906 1 742 61 



Total 



19. 780. 02 



Less cost of machinery condemned and sold during fiscal year 

1905-6 _ 555> 1Q 

Total ]9 224 92 

«n T ^ e J ve uJ lu ? dred and fift y- two requisitions for printing and supplies were 
filled by the bureau in the period from July 1, 1905, to June 30, 1906. A maxi- 
mum of 35 men and a minimum of 23 were employed. What machinery and 
fixtures we have are in good condition and well adapted to present requirements, 
but a greater supply of type and miscellaneous printing material is needed to 
enable the bureau always to meet satisfactorily and swiftly the various demands 
made upon it. The machinery and printing supplies purchased by the public 
printer while in the United States in June, 1905, greatly increased the efficiency 
of the plant. Two Chandler and Price Gordon presses, valued at $500, were 
lately ordered to take the place of those removed bv the department of educa- 
tion, on the withdrawal of the printing class of the San Juan Industrial School. 

S. M. Hyde, 
Chief of Bureau of Printing and Supplies. 

During the fiscal year 1905-6 approximately 15,000 documents 
have been handled in the general file of the secretary's office, and 
10,000 in the appointment file, making a total of 25,000 documents, 
each one of which has been briefed, indexed, and filed. 
S. Doc. 135, 59-2 4 



50 



PORTO RICO. 



Copies of the laws of Porto Rico, Governor's Report, and Register 
of Porto Rico were mailed and distributed as follows: 

Laws of Porto Rico, 190(3, hi English 215 

Laws of Porto Rico, 1906, in Spanish 515 

Governor's Report for 1905 200 

Register of Porto Rico for 1905 I 1, 350 

Also various copies of the following publications, kept for distri- 
bution in the office of the secretary: 

Laws of Porto Rico for the years 1902, 1903, 1904, and 1905. 

Governor's Message. 

Reports of the Anemia Commission. 

Election Law in pamphlet form. 

Registers of Porto Rico for 1901 and 1903. 

Reports of the Governor for 1901, 1902, 1903, and 1904. 

Census of Porto Rico, English and Spanish. 

Translations of old Spanish laws. 

The following fees were collected in the office of the secretary from 
July 1, 1905, to June 30, 1906 : 

For registration of corporations, filing and recording documents, and 

certificates issued $1,949.55 

Sale of law books 244.83 

Oaths administered^ 1 7.00 

I have the honor to be, sir, your obedient servant, 

Regis H. Post, 
Secretary of Porto Rico. 
Hon. Beekman Winthrop, 

Governor of Porto Rico. 

List of foreign corporations registered June 30, 1906. 



Name. 



British and Foreign Marine Insurance Co. 
(Limited) . 

Indemnity Mutual Marine Assurance Co. (Lim- 
ited). 

Lancashire Insurance Co 

Magdeburg Fire Insurance Co 

New York Life Insurance Co. . 

North British and Mercantile Insurance Co. . . 

North German Fire Insurance Co 

Northern Assurance Co 

Norwich Union Fire Insurance Co 

Prussian National Insurance Co 

Royal Insurance Co 

San Juan Light and Transit Co 

San Juan and Rio Piedras Railroad Co 

Guanica Centrale 

Swift & Co 

New Colonial Co. (Limited) : 



Agent. 



Mullenhoff & Korber. 



Sobrinos de Ezquiaga. 

Mullenhoff & Korber. . 
do 

L. Sanchez Morales . . . 

Fritze, Lundt & Co 

Mullenhoff & Korber . . 
J. Ochoa y Hermano. . 

J. T. Silva & Co 

Mullenhoff & Korber. . 
Sobrinos de Ezquiaga. 

Lloyd Lyon 

....do 

Julius Umbach 

H. II. Cloy 

William Shand Marr. . 



American Colonial Bank 

The New York and Porto Rico Steamship Co. . 
Manufacturers and Temperance and General 
Life Assurance Co. 

Porto Rican-American Tobacco Co 

San Juan Ice and Refrigerating Co 

Canovanas Sugar Factory (Limited) 



American West Indies Trading Co. 

North German Insurance Co 

Fire Insurance Co. of 1877 

Sun Life Insurance Co. of Canada.. 
Palatine Insurance Co. (Limited) . . 
Mannheim Insurance Co 



E. L. Arnold 

J. Ram6n Latimer 

Finlay Bros. & Waymouth Trad- 
ing Co. 

Luis Toro 

Hubert Needham Clarity 

Richard Silberrad Brown 



Pedro Schira 

Fritze, Lundt & Co... 
J. Ochoa y Hermano. 

Gandia & Stubbe 

do 

Mullenhoff & Korber. 



Address. 



San Juan. 
Do. 

Do. 

Do. 

Do. 

Do. 

Do. 

Do. 

Do. 

Do. 

Do. 

Do. 

Do. 
Ponce. 
San Juan. 
Canovanas Sugar 
Factory, Loiza. 
San Juan. 

Do. 

Do. 

Do. 

Do. 
Canovanas Fac- 
tory, Loiza. 
San Juan. 

Do. 

Do. 

Do. 

Do. 

Do. 



PORTO RICO. 51 

List of foreign corporations registered June SO, 1906 — Continued. 



Name. 



Agent. 



Address. 



Commercial Union Assurance Co. (Limited) . 



The iEtna Powder Co 

Aachen and Munich Fire Insurance Co 

Hamburg-Bremen Fire Insurance Co 

The Porto Rico Fruit Co 

The Mutual Life Insurance Co. of New York.. 

Ponce Railway and Light Co 

German Lloyd Marine Insurance Co 

Fidelity and Deposit Co. of Maryland 

American Railroad Co. of Porto Rico 

West India Oil Co 

Guardian Fire and Life Assurance Co. (Lim- 
ited). 

j^orto Rican Leaf Tobacco Co 

The Gustavo Preston Co 

Central Los Cafios 

Liverpool and London and Globe Insurance Co. 
British America A ssurance Co 



The Porto Rico Telephone Co 

The Domestic and Foreign Missionary Society 

of the Protestant Fp scopal Church .n the 

United States cf America. 

The Union Central Life Insurance Co 

International Lloyd Joint Stock Insurance Co 

The Candelaria Fruit Co 

The Mutual Plantation Co 

The Bayamon Fruit Co 

The Puerto Rico Planters Co 

American Surety Co. of New York 

Waldrop Photographic Co 

Espinosa Fruit Co 

Cayev-Caguas Tobacco Co 

The Industrial Co. of Porto Rico 

Ponce, and Guaynma Railroad Co 

Vega Baja Fruit and Land Co 

Mona Island Phosphate Co. (Limited) 

The Vista Hermosa Co 

The Southern Cross Fruit Co 

Central San Cristobal 

Singer Sewing Machine, Co 

The Christian Women's Board of Missions 

Sucrerie Central ' ' Coloso " 

Compagnie des Sucreries de Porto Rico 

West Indies Commercial Co 

The Fajardo Sugar Co 

Porto Rico Engineering Co 

The. Humacao Sugar Co 

The Fajardo Development Co 

Federal Insurance Co 

Franco-American Hat Co 

The. Corozal Mining Co 

Porto Rico Orange and Cotton Co 

Porto Rico Canning Co 

Herkimer-Porto Rico Fruit and Land Co 

Esperanza Central Sugar Co 

Central A guirre Co 

The Western Assurance Co 

The Las Palmas Hotel Co 

Porto Rico Light and Power Co 

The Bayamon Fruit and Land Co 

Martin Auto Co 

Central Altagracia (Incorporated) 

South Porto Rico Telephone Co 

Reading Iron Co 

Porto Rico Grove and Garden Co 

Day Porto Rican Fruit Co 

Buffalo and Porto Rico Fruit Co 

The West India Cigar Co 

Sucreries de Saint- Jean 

San Antonio Docking Co 

San Juan and Cdguas Railroad Co 



Finlay Bros. & Waymouth Trad- 
ing Co. 

Dooley, Smith & Co 

Fritze, Lundt & Co 

do 

Arthur B. Mitchell 

Wm. Korber 

Gardner Rogers 

"Villar & Co 

Edwin L. Arnold 

Auguste Duval.. 

J. A. Fricker 

\illar &Co 



L. Toro 

W. D. Sheldon 

Hermann J. F. Pohlmann 

Gandia & Stubbe 

J. T. Silva Banking and Commer- 
cial Co. 

Conrad O. Palau 

James Heartt Van Buren 



Jose C. Bartosa 

Moral & Co., S.enC... 

Nathaniel A. Walcott. 
do 

Samuel P. Bates 

John H. Hanaford 

Conrado Palau 

Frank L. Silva 

John H. Hanaford 

Harrison Johnson 

Luis Toro 

W. J. Lowrie 

Alfred Soloman 

W. D.Noble 

Alfred William Bowser. 

John A. Wilson 

Philip G. Mumford 

Oscar David Hoffman.. 

Maria Reynolds Ford . . 

Henry DeCluy 

Arsehe Hoffman 

Fernando Pla 

Jorge Bird Arias 

Jos6 Toro Rios 

do 

Jorge Bird Arias 

Sosthenes Behn 

August Wagner 

Henry F. Hord 

Rollins B. Murphy 

Raleigh F. Haydon 

Charles P. Avery 

Jose Toro Rios 

W. J. Lowrie 

Sanders, Philippi & Co . 

John A. Beaver 

Clare F. Beames 

Samuel P. Bates 

N. B. K. Pettingill 

Frederick L. Cornwell . . 

Lemuel R . Groves 

William Villavaso 

Newton L. Reed 

Walter Q,. McAdams . . . 

Samuel P. Bates 

Gregorio Lopez Falco. . 

Mateo Pierrot 

Francisco J. Amy 

Luis Toro 



San Juan. 

Do. 
Do. 
Do. 

Bayamon. 
San Juan. 
Ponce. 
San Juan. 

Do. 

Do. 

Do. 

Do. 

Do. 

Naguabo. 
Arecibo. 
San Juan. 
Do. 

Do. 
Do. 



Do. 
Playa, Mayaguea. 
San Juan. 

Do. 

Do. 

Do. 

Do. 

Do. 

Do. 
Caguas. 
San Juan. 
Central Aguirre. 
San Juan. 

Do. 
Aguas Buenas. 
San Juan. 
Naguabo. 
San Juan. 
Bayamon. 
Aguadilla. 
Ponce. 
C&guas. 
Fajardo. 
Humacao. 

Do. 
Fajardo. 
San Juan. 
Aguadilla. 
San Juan. 
Bayamon. 
Mayaguez. 
Bayamon. 
Humacao. 
Central Aguirre. 
Aguadilla. 
San Juan. 

Do. 
Santurce. 
San Juan. 
Mayaguez. 
Ponce. 
San Juan. 

Do. 
Manati. 
San Juan. 
Arecibo. 
San Juan. 
Do. 
Do. 



52 PORTO RICO. 

List of domestic corporations registered June 30, 1906. 



Name. 



La Carmelita Co 

The Bonnie Fruit Co 

The Pioneer Fruit Co. of Porto Rico 

The American Grocery and Ship Supply Co 

Walcott Fruit and Land Co 

Arecibo Fruit Co 

Porto Rico Salt Co 

Norton Brothers Co 

Ponce Agricultural and Industrial Co 

The Santurce Industrial Co 

Mayaguez Light and Power Co 

The Providencia Central Co 

The Enriqueta Land Co 

Central Cambalache 

The Redemptorist Fathers of Porto Rico. . 

The Solitaria Land Co 

The Juncos Central Co 

The Progreso Sugar Factory 

The San Juan Hippodrome Co 

La Fortuna Fruit Co 

Ponce Commission Co 

The Fajardo Fruit Co 

Suzanna Land and Fruit Co. of Porto Rico 

Hipodromo Poncefio 

The Caribbean Fruit Co 

The Yabucoa Sugar Co 



Principal plac« 
of business. 



Ponce. 
San Juan. 

Do. 

Do. 

Do. 

Do. 
Mayaguez. 
Bayamon. 
Ponce. 
Santurce. 
Mayaguez. 
Arroyo. 

Do. 
Arecibo. 
Mayaguez. 
Humacao. 

Do. 
San Juan. 

Do. 

Do. 
Ponce. 
San Juan. 

Do. 
Ponce. 
San Juan. 

Do. 



Associations registered from July 1, 1905, to June SO, 1906. 



Name and location. 



The Board of Trade of Porto Rico, San Juan, P. R 

Club Eugenio Ma. de Hostos, San Juan, P. R 

Asociacion de Maestros de Puerto Rico, San Juan, P. R 

Centro Maria Virginia, Ponce, P. R 

Casino de Juana Diaz, Juana Diaz, P. R 

El Grano de Oro, San J uan, P. R 

Estrella de Rio Grande, Rio Grande, P. R 

El Lazo Rojo, Caguas, P. R 

El Amparo, Mayaguez, P. R. a 

Patria, No. 191, San Juan, P. R 

Pi Margall No. 282, San Juan, P. R 

The Play Ground Association of Porto Rico, Ponce, P. R 

Socorros Mutuos, Vega Baja, P. R 

Uni6n Obrera Puertorriquefia, Ponce, P. R 

La Independiente, Grupo de Marinos de Mayaguez, P. R 

Liga de Republicanos Espanoles, San Juan, P. R 

Uni6n General de Albafiiles, San Juan, P. R 

Asociacion de Escritores y Artistas en Puerto Rico, San Juan, P. R 

Liga Anti-tuberculosa de Puerto Rico, San Juan, P. R 

Betanees, San J uan, P. R 

Lira, Caguas, P. R 

La Unite de Despalilladoras, Arecibo, P. R 

Uni6n Protectora, San Juan, P. R 




Constituted under Spanish rule. 



Exhibit B. 
REPORT OF THE ATTORNEY-GENERAL OF PORTO RICO. 

Office of the Attorney-General of Porto Rico, 

San Juan, July 1, 1906. 

Sir : I have the honor to submit the following report for the fiscal 
year ending June 30, 1906 : 

The year just ended found the judiciary well established under the 
reorganization act of 1904. The judicial officers and the practicing 
lawyers are making considerable progress in acquainting themselves 
with the new system, and we may confidently expect that soon they 
will be as familar with the new practice act as they were with the 
civil procedure in force under the Spanish Government. 

COURTS. 

On July 1, 1905, twenty new municipalities were organized, or, to 
be more correct, reorganized. They had been independent munici- 
palities prior to the year 1902, when they were disorganized and 
attached to other municipal districts. The act of 1905 recreated the 
municipalities previously discontinued, with the same territorial 
limits which formerly bounded them. In accordance with the terms 
of the new act, the governor appointed a justice of the peace for each 
of the new municipalities, thus increasing their number to 66. 

A question of considerable importance affecting the organization 
of the district courts was presented during the last fiscal year. The 
organic law by which civil government was established in Porto 
Eico provided that the courts as organized under the military gov- 
ernment should continue until altered or modified by law. The dis- 
trict courts as so organized were composed of three judges each. The 
act of 1904 reorganized the judiciary, abolished the courts established 
by general orders, and created district courts of one judge only. It 
was contended that the act of 1904 was in violation of the organic 
law; that Congress alone had the power to change the organization 
of those courts. This department was confident from the beginning of 
the controversy that the contention was unsound. The question was 
finally presented in concrete form during the month of April of this 
year, when a prisoner condemned to death by the district court of 
Humacao applied to the supreme court of Porto Eico for a writ of 
habeas corpus. The validity of the death sentence was attacked on 
the ground that the trial court, as constituted with one judge, was not 
a legal court; that the act of the legislature creating it was void 
because it contravened the act of Congress creating a civil government 
for Porto Eico. The insular supreme court dismissed the writ, and 
an appeal was taken to the Supreme Court of the United States, 
where the issue was submitted and resolved in favor of the people 

53 



54 PORTO RICO. 

of Porto Rico. No extended opinion was rendered by the Supreme 
Court at Washington. The court limited itself to affirming the judg- 
ment of the insular court, and cited the organic act of Porto Eico to 
sustain the finding. 

This department was never in doubt as to the validity of the act 
by which the new courts were established. But the question presented 
was one that affected not only the judgments and orders, civil and 
criminal, rendered by the district courts since July 1, 1904, but also 
the judgments rendered by those courts in cases tried by juries since 
the year 1901, when the act authorizing jury trials was enacted. 
That act provided that one judge should preside in trials by jury. 
The contention was therefore far-reaching, and it was this that gave 
it importance. The decision of the Supreme Court of the United 
States set the matter at rest and has established the right of this 
government to construct its judiciary on such plans as to these people 
may seem wise. The decision of the Supreme Court of the United 
States served another purpose; it furnishes further proof of the fact 
that the Congress has established a political system for the people 
of this island, with powers which in a very great measure permit 
them to exercise the right of local self-government. 

You will find attached to this report tabulated statements of the 
civil and criminal business transacted by the courts of the island dur- 
ing the last fiscal year. The statements are interesting, inasmuch as 
they show that the courts have kept pace with the commercial and 
industrial development of the island. Porto Rico is at present en- 
joying prosperity to an extent perhaps not exceeded in its history, and 
the benefits of the commercial activity are not confined to any particu- 
lar industry. It seems to extend to all lines, and as a natural result 
of the business revival the civil cases before the courts have greatly 
increased. A comparison of the amount of civil business brought 
before the courts during the last fiscal year with that of the year 
previous shows that the civil cases filed in the district courts during 
the year just ended exceeded those filed during the year 1904-5 D3 7 
541, 2,146 cases having been filed during the year just ended and 1,005 
during the previous year. The district court of San Juan shows the 
greatest increase of civil business, 194 cases having been filed therein 
in excess of those filed during the year 1904-5. The increase in the 
business of the district court of San Juan was such that it was im- 
possible for one judge to dispose of it, and an act was passed at the 
last regular session of the legislature by which the court was reor- 
ganized with two sections, with one judge for each section. One 
of the sections has the ordinary civil and appellate jurisdiction con- 
ferred by law on the district courts generally ; the other has the ordi- 
nary criminal, original, and appellate jurisdiction of a district court, 
and has also jurisdiction in all cases in which the people of Porto Rico 
is a party other than cases to recover immovable property. Each of 
the sections has power to issue writs of habeas corpus. The section 
having civil jurisdiction only is known as section 1 and the other as 
section 2. Section 2 has also jurisdiction to issue writs of injunction, 
certiorari, mandamus, attachment, execution, and other writs when 
necessary to enforce its jurisdiction. The court was reorganized and 
a judge appointed by the governor for each section on April 1 last. 
The change meets with the hearty approval of the practicing lawyers 
of San Juan and of the business community as well. 



POETO RICO. 55 

The increase in the amount of civil business coming before the new 
court I am sure will require a change in the jurisdiction as now 
exercised by the respective sections. I am of the opinion that sec- 
tion 1 should be relieved of some of the work now imposed on it 
by transferring to section 2 jurisdiction in probate matters. The 
present arangement does not divide the labors equally between the 
two judges. Civil cases require more time and study, and the judge 
who presides over section 1 finds himself overtaxed with work. Both 
of the judges have called my attention to the inequality in the extent 
of the work assigned to each of them, and the judge who presides 
over section 2 has expressed a desire to have the jurisdiction of 
his section increased. 

Passing to the municipal courts, it will be noted that there also 
the civil business has increased. Two thousand one hundred and 
sixty-one cases were filed in the 24 municipal courts during the fiscal 
year 1904-5, while during the last fiscal year 2,65(3 were filed, an 
increase of 495 cases. All the municipal courts show an increase in 
civil cases except the courts of Cayey, Fajardo, Mayaguez, and 
Ponce, where a decrease is shown. The greatest increase was in the 
municipal court of San Juan, where the civil cases filed during the 
year just ended exceeded those filed during the previous year by 114. 

As a rule the litigants before the courts seem to have been satisfied 
with the disposition made of the cases. Of the 1,869 matters dis- 
posed of in the 7 district courts but 127 appeals were taken, and in 
the 2,480 cases disposed of by the municipal courts only 165 appeals 
were taken. This would indicate that the judiciary is administer- 
ing the new laws to the satisfaction of the public. 

An increase in the number of civil cases brought before the courts 
is not the only improvement indicated by the last year's record over 
that of the previous year. The reports from the district courts show 
that 1,086 felony cases were presented by the fiscals during the year 
1904-5, and during the year 1905-6 only 933 cases were filed, a de- 
crease of 153 cases. And the fact that homicides were less frequent 
during the year just ended than during the year previous is a 
very hopeful sign. The record for 1904-5 was 66 homicides of 
all grades, that for 1905-6 was 49 homicides of all grades, a decrease 
of more than 25 per cent. The marked difference is in the number 
of murder cases filed in 1904-5 as compared with 1905-6. The 
former year's record was 28 cases as against only 10 in the latter 
year. The falling off in the number of homicides may be attributed 
to the good work of the police and the vigorous prosecution by the 
fiscals of the person charged with crime. 

The improvement shown in the decrease in the number of felonies 
in the island during the last year does not extend to the lesser of- 
fences. The reports from the municipal courts show an increase 
in the number of misdemeanors and petty offences filed during the 
last fiscal year, as compared' with those presented during the pre- 
ceding year. The increase amounts to nearly 2,000 cases. It is not 
easy to account for the increase; it may be due to the concentration 
of men at many points of the island, owing to the great demand for 
laborers at the various factories and plantations. Many of the 
offences are such as usually result from pay-day festivities, where 
laborers are congregated in great numbers. 



56 PORTO RICO. 

The fiscal year 1904-5 included the election period of 1904, and 
the figures submitted seem to disprove the statement often made that 
more disturbances of the peace are committed during the election 
period than at any other time. The increase in the number of mis- 
demeanor cases filed was in all of the municipal courts, except those 
of Bayamon, Coamo, Mayaguez, Ponce, San German, and Vega 
Baja, which show a decrease. 

The municipal courts rendered 14,521 judgments of conviction 
during the year 1905-6, as compared with 12,565 for the year pre- 
ceding, an increase for the year just ended of 1,586. Of the 12,565 
judgments of conviction rendered in the year 1904-5, 241 were 
appealed from, and of the 14,121 rendered last year 337 were ap- 
pealed from, an increase of 96, showing a proportion of appeals 
greater than for the preceding year. 

There are some matters connected with the criminal business of 
the municipal courts which I desire to call to your attention. The 
criminal jurisdiction of the justice courts is too limited, and includes 
few matters other than violations of municipal ordinances. 

The question of the jurisdiction of the courts was discussed gen- 
erally at the last regular session of the legislature, but no definite 
action was taken, and -the justices of the peace courts remained with 
their present very limited jurisdiction. A few of the municipal 
courts are able to dispose of all the business coming before them, but 
many of them can not do so. The municipal courts of Ponce and 
Humacao have such a large volume of criminal business that it is im-' 
possible for the judges to attend to it, although every effort is made by 
them to dispatch business. The municipal court of Ponce disposed of 
2,391 criminal cases during the last year, in which 1,836 convictions 
were rendered and 434 acquittals. In addition to the criminal busi- 
ness transacted it disposed of 287 civil cases. The strain on the 
physical and mental faculties of the judge under such conditions is 
severe, and some relief should be given to him by increasing the 
jurisdiction of the justice court of Ponce and by adding another 
justice court to that municipality if necessary. 

The municipal court of Humacao is also burdened with business. 
It disposed of 1,590 criminal cases during the last year, in which 
1,149 judgments of conviction were rendered and 441 acquittals. 
Besides the criminal business, 73 civil cases were disposed of by 
that court. 

In the returns of the municipal court of San Juan we find that it 
disposed of 1,341 criminal cases and 471 civil cases. I am sure that 
the municipal courts of Mayaguez, Arecibo, and Guayama are also 
overburdened and should be relieved by legislation as soon as 
possible. 

The municipal court of Humacao reports 2 appeals from the 
1,149 judgments of conviction rendered by it last year. This show- 
ing is remarkable, and it is doubtful whether a court anywhere can 
present a better record than that. 

The municipal court of Yabucoa had but' 1 appeal out of 437 con- 
victions, and in the municipal court of Barros not a single appeal 
was taken from 193 convictions rendered bv it. 



POETO EICO. 57 

JURY SYSTEM. 

The progress made in the jury system in Porto Rico is of interest, 
not only as a matter of criminal statistics, but as indicative of the 
advancement of the people of the island in the art of self-govern- 
ment. Jury trials were first established here in 1901, after the civil 
government was organized under the Foraker law. The law went 
into effect on April 1 of that year. For the first ten months there- 
after not one jury trial took place in the island, and only ten such 
trials had been demanded, and within a year and a half after the 
law became effective only one case was tried by jury in the district 
court of San Juan, the most important trial court of the island. In 
the remaining courts of Ponce, Mayaguez, Arecibo, and Humacao 
(there being but five district courts until July 1, 1904) but 17 jury 
trials were heard prior to September 30, 1902. In the district court 
of Arecibo no jury trial was had up to that date, while in the dis- 
trict court of San Juan but one jury trial was had. During that 
period 8 cases were tried by juries in Mayaguez, resulting in 4 ver- 
dicts of conviction and 4 of acquittal. In the district court of Ponce 
4 cases were tried by jury during that period, in which 2 verdicts 
of conviction and 2 of acquittal were rendered. In the district court 
of Humacao 4 jury trials were had, in which but 1 conviction was 
secured. 

After the period just mentioned the demands for trial by jury 
began to increase, and we find that during the month of October, 
1902, 30 jury trials were heard in the district court of Mayaguez. 
But 11 judgments of conviction resulted from these trials. Thus it 
appears that from April 1, 1901, until October, 1902, only 47 trials by 
jury were had in the district courts, resulting in 18 verdicts of guilty. 

Let us pass over the years intervening and examine the record of 
the fiscal year 1904-5. We find that 334 jury trials were had that 
year, resulting in 177 convictions and 154 acquittals. This is a con- 
siderable increase, not only in the number of jury trials, but in the 
average number of convictions as well. The number of jury trials 
during the year 1905-6 was 339, 5 more than the year previous. But 
when we consider that 153 felony cases less were filed in 1905-6 than 
the year previous, the proportionate increase in jury trials is of im- 
portance. Of these trials 182 resulted in convictions, 150 in acquit- 
tals, and 7 in mistrials. 

The scarcity of jury trials for so long a period after the law 
authorizing them went into effect was doubtless due to the disinclina- 
tion of the people to adopt a procedure with which they and the 
courts were then unfamiliar, and, perhaps, to the existence of a 
belief in the minds of the parties accused that their rights would be 
better protected under a system to which they had become accus- 
tomed by experience and practice. The failure to obtain a greater 
percentage of convictions may be attributed in a large measure to 
the want of familiarity with the jury system on the part of the 
fiscals, who were thus handicapped in presenting the cases to the 
jury, and to the further fact that the judges were also unacquainted 
with the system, and, necessarily, in many instances, must have mis- 
directed the jury. 



58 PORTO RICO. 

LEGISLATION. 

Among the laws passed at the last general session of the legislature 
was one to provide for the recording of judgments in the registry of 
property for the purpose of creating liens upon immovable property. 
The mortgage law permitted the annotation of judgments against the 
record of each piece of real estate, but as the system required as 
many entries to be made in the record as there were pieces of property 
recorded the practice was cumbersome and expensive. The new act 
follows the legislation prevailing in the United States on the sub- 
ject of judgment liens. It authorizes the recording of judgments 
of the United States district court for Porto Rico in the same manner 
and with like effect as that provided for the judgments of the insular 
courts. Of course the old Spanish law contained no such provision. 

Another act adopted at the same session of considerable importance 
is that providing for the trial of the right to an elective office. The 
act follows closely the election-contest laws which are in force 
throughout the United States and will no doubt prove benefi- 
cial to the people. It will afford the citizen means of protecting 
himself against the unlawful deprivation of an office which justly 
belongs to him without having to appeal to the executive officers of 
the government, as he had to do formerly under the quo warranto 
law. The fact that a citizen who believes himself duly elected to 
an office can enforce his claim through the courts in the same man- 
ner as he would any other claim will no doubt materially assist in 
bringing American principles of government to the knowledge of 
the people. The people of Porto Rico for years have been taught to 
look to the executive authority for redress in all matters, and the idea 
that a citizen could recover possession of an elective office without the 
intervention of the executive authorities was unheard of during the 
Spanish regime. Under the new act the issue may be tried and the 
right to the office determined in like manner as if it were an ordinary 
civil claim. The enactment of the law was a step forward in the 
direction of government by and for the people. The island has made 
rapid progress in that respect during the last few years and the 
people are beginning more and more to rely on the courts for the 
adjustment of their differences. 

An act creating a code commission was also approved at the last 
session of the assembly and took effect on July 1. The governor, by 
virtue of its provisions, has appointed three gentlemen to serve on 
the commission. The three men selected are among the best to be 
found in the island, and I have no doubt that their work will be of 
great value to the judiciary of the country. The commission is 
required to revise and compile all the laws of Porto Rico and make 
a report to the legislative assembly within two years from the date 
of their appointment. The task is one requiring industry, intelli- 
gence, and careful attention to detail. The high character and 
ability of the gentlemen commissioned to do the work is an assurance 
that it will be faithfully and creditably done. 

The most popular act of the last assembly was the adoption of a 
law providing for a system of government for the municipalities. The 
main features of the law of 1902 were continued in the new act, but 
the latter owes its popularity to those provisions in it which make 
the municipalities almost independent of the central government. 



PORTO RICO. 59 

The new law takes from the secretary of Porto Rico the administra- 
tive control and veto power which he had over the acts and reso- 
lutions of the municipal councils and their executive officers. Any 
citizen who feels himself aggrieved by an act of a municipality or 
one of its officers must now^appeal to the courts for redress and not 
to the secretary of Porto Rico as formerly. 

A very novel feature of the new law is that which makes it the 
duty of the attorney-general to defend before the courts any person 
who has a meritorious claim against a municipality or any of its 
officers, if the person is too poor to employ counsel. The law also 
requires the attorney-general to compel the municipalities by man- 
damus to make proper provision in their budgets to meet all legit- 
imate charges against them, and, in fact, to compel them to com- 
ply fully with the law in every respect. The attorney-general has 
no supervision over the municipalities such as that formerly exer- 
cised by the secretary of Porto Rico. He can only require them and 
their officers to obey the law by appealing to the courts against them. 

No doubt the new duties assigned to the attorney-general by the 
municipal law will largely increase the work of this department, but 
I am hopeful that it can be attended to without an increase in the 
personnel of the office. 

The law regulating the notarial practice in Porto Rico had re- 
mained the same as when it was adopted by the Spanish Government, 
with few changes, until recently. All those provisions of the old 
law which were political in their nature ceased to be in force imme- 
diately upon the change of sovereignty. Other provisions in it have 
become obsolete. A revision of the law was therefore necessary. 
This was done by the last assembly, and the law as revised was 
reenacted with provisions more in keeping with the present business 
condition of the island. The law as reenacted makes the attorney- 
general the administrative chief of the notaries, and thus additional 
duties are imposed upon him. 

The act to regulate the practice of law in Porto Rico adopted at 
the last session of the legislature is of importance to the bar of the 
island. The new law requires a much broader examination for ad- 
mission to practice than that required by previous legislation, and 
includes an examination on subjects of American legislation and 
jurisprudence. It also establishes rules for the conduct of lawyers 
in their practice before the courts. 

Another act adopted at the last session of the legislature of special 
interest to the courts is that authorizing the establishment of law 
libraries for the district courts. In past years the district judges 
have been required to administer the laws without the benefit of 
books save those in private libraries, and when the change from the 
Spanish laws to the present system took place the judicial officers 
were compelled to interpret the new laws without books to aid 
them. The penal code and code of criminal procedure, the law of 
evidence, and the code of civil procedure now in force here were 
taken from the laws of California, and yet none of the courts was 
provided with the California reports. The recent enactment makes 
special provision for the purchase of the reports of the supreme 
court of California for each one of the district courts, and also au- 
thorizes the purchase of the decisions of the supreme court of Madrid 
on the mortgage law and the civil code. Steps have been taken to 



60 PORTO RICO. 

secure the much-needed books. The acquisition of the California 
reports has been delayed owing to the fact that the supply on hand 
in the publishing houses in San Francisco was all destroyed during 
the earthquake and fire which ruined a large part of that city. It 
is expected that by the end of October of this year the courts will 
have the reports. The reports of the supreme court of Madrid have 
been ordered and are now on their way from Spain. 

An act embodying the principles of the system commonly known 
as the " Torrens law " was introduced in the executive council during 
the last regular session of the assembly ; also an act to provide for a 
cadastral survey of the island, the latter act being considered a com- 
plement to the former. When nry last annual report was written I 
was hopeful that both laws would be adopted at the succeeding ses- 
sion of the legislature, but a strong spirit of opposition was devel- 
oped among the members of the house of delegates, and under the 
circumstances it was deemed advisable not to pass the laws in the 
executive council. The two bills were permitted to remain in com- 
mittee without report. I am still strongly of the opinion that a 
reform in our land laws is needed. It is true in some respects the 
present system is better than that in force in many of the States of 
the Union, but, nevertheless, our system does not afford any more 
protection to land tenures than is found in the ordinary systems now 
existing in the States, and ours is by far the most expensive. The 
superiority of the Torrens system of land registration lies in the 
security it gives to titles and in the very simple and inexpensive 
method of transferring property rights on the records afforded by it. 

But, whatever be the opposition which may be urged to the adop- 
tion of the Torrens law in the island, surely no one can interpose a 
serious objection to a cadastral survey. It is an absolute necessity. 
It is needed to ascertain the quantity and location of public lands, 
so that they may be utilized for the public benefit. Private holdings 
of land are not sufficiently defined, and no accurate maps exist for 
any district of the island. 

Fear prevails in some quarters that a cadastral survey would 
result in the government depriving private persons of their land. 
No person honestly in possession of real estate need have such fear. 
A cadastral survey would only result in the acquisition by the gov- 
ernment of the lands rightfully belonging to the public. The citizen 
would be at all times amply protected in his honest holdings by the 
judiciary of the country. I would therefore respectfully recommend 
that the necessity of a cadastral survey be brought to the attention 
of the legislature at the next session. 

PARDON MATTERS. 

The practice of applying for pardons prevails in Porto Rico to an 
extent unknown in the "States. The petitions for executive clemency, 
as a rule, are presented without proof or data of any kind to support 
the applicants' claims for pardon. The law makes it the duty of the 
attorney -general to investigate all pardon cases and to make a report 
to the governor thereon, and in making investigations the attorney- 
general is required to obtain from the courts and the authorities in 
charge of penal institutions the information necessary upon which 
to base his report. I am informed that the same practice prevailed 



POKTO RICO. Ql 

under the Spanish Government and was continued by the military 
authorities after the change of sovereignty. When the civil govern- 
ment was organized, it found the practice so firmly established that it 
has been followed to this day. It entails considerable work on the 
department of justice and the department of correction as well. Six 
hundred and forty-nine applications for pardon were presented to 
the governor during the last fiscal year. Of these, 103 were passed 
on favorably, 51 absolute pardons having been granted and 52 com- 
mutations. I respectfully submit that a rule should be established 
requiring the applicants for pardons to present all information upon 
which to base an investigation. It is well that the governor should 
have the services of the attorney-general in all such cases, to aid him 
in ascertaining the merits or want of merits of the application, but 
the insular treasury should be relieved of the expense now imposed 
on it by the present practice, which virtually requires the attorney- 
general to apply to all sources for information on behalf of the appli- 
cant, and to make every effort to develop a case favorable to him. 
The system should be changed by requiring the interested parties to 
bring the information to the attorney-general. If the applicants 
were required to bring forward the evidence to support their appli- 
cations the petitions would not be so numerous. With rare exceptions 
those having meritorious cases alwavs find friends to aid them to 
secure the necessary proof on which to base their applications. The 
law is binding on the attorney-general, and requires him to make 
the investigation when the case is referred to him by the governor. 
The latter may act in such matters, however, without referring the 
case to the attorney-general. His authority to grant pardons is 
derived from the organic act. and no limitations can be placed on it 
by the assembly. 

I would respectfully recommend that a rule be established in con- 
formity with the suggestions here made. If it is not deemed desirable 
to adopt rules by which applicants may be required to present evi- 
dence m support of their petitions under the present condition of the 
law, I would then suggest an amendment to the law by which the 
attorney-general would be relieved of the duty of investigating 
the cases for applicants unless expressly requested by the governor 
to do so. The law should be amended so as to give to the governor 
authority to call the attorney-general to his aid and to require him 
to perform such duties as the former might deem necessary in dis- 
posing of all applications for pardon. With the law so amended, 
rules could be adopted by which the present burdensome, and to a 
great extent unprofitable, system could be abolished, and the work 
would then be confined to cases duly presented and deserving of 
consideration. 

COMMITTEE WORK. 

The attorney -general is the chairman of the judiciary committee 
and of the committee on franchises, privileges, and concessions of the 
executive council. Both of these committees meet in the office of the 
attorney-general, and, as chairman, the duty devolves upon him to 
preserve the minutes and records of both committees, conduct all 
their correspondence, and write their reports to the executive council. 

The work of the committee on franchises, privileges, and conces- 
sions has assumed large proportions. The matters brought before it 



62 



PORTO RICO. 



during the last year far exceed those of any year previous. The 
increase of the business before the committee is due to the great devel- 
opment now going on in the commerce and industry of the island. 
Franchises for building railroads, wharves, and other public utilities 
are being applied for to a greater extent than ever before in the 
history of Porto Rico. The work of investigating the merits of the 
applications for franchises devolves on the committee, and its recom- 
mendations, with rare exceptions, are approved by the executive 
council. 

During the past year the committee had also under consideration 
the question of transportation charges and the regulation of the 
instrumentalities of commerce in general. The great increase in 
freight movement has called for action from the executive council in 
the interest of the public, to prevent discrimination in freight charges 
and in the accommodations given to shippers. The committee has 
the matter under investigation, not having been able to finish the 
work before the end of the fiscal year. I have already said that the 
committee holds its sessions in the office of the attorney-general, and 
that he, as the chairman, conducts all its correspondence. This corre- 
spondence is not included in the regular departmental work, and is 
of considerable volume. No aid is furnished by the executive council 
in connection with the committee work ; the attorney-general utilizes 
the personnel of his office for that purpose. Matters relating to the 
executive council are not, strictly speaking, within the subjects of the 
attorney -general's report, yet the increase in the business coming 
before the franchise committee has added so much to the work of this 
office that I deemed it proper to make note of it here. 
I beg to remain, respectfully, 

Frank Fenille, 
A ttorney- General. 

Hon. Beekman Winthrop, 

Governor of Porto Rico, 

San Juan, P. R. 



Business transacted by the supreme court of Porto Rico during fiscal year 1905-6. 



Classification of cases. 



Civil business: 

Civil 

Mandamus 

Certiorari 

Administrative . 
Criminal business: 

Criminal 

Habeas corpus.. 

Total 



x. ,; Received 

iyuo. 1905-6. 



26 



104 



108 

6 

25 

17 

81 
13 

250 



Disposed 
of. 



141 

7 

26 

17 



299 



Cases li, 
pending 
on'July 
1, 1906. 



12 



55 



PORTO RICO. 



63 



Business transacted in the district courts of Porto Rico during fiscal year 1905-6. 

CIVIL BUSINESS. 



District courts. 



Aguadilla.. 

Arecibo 

Guayama.. 
Huinacao.. 
Mayaguez. 

Ponce 

San Juan. . 

Total 




Received 
during 
1905-6. 



190 
233 
192 
252 
379 
329 
571 



Disposed 
of. 



182 
154 
179 
215 
374 
308 
455 



2, 146 1, 867 



Pending 

Julyl, 

1906. 



31 
230 

60 
104 
241 
217 
381 



1,264 



Appeals 
taken. 



15 

30 
4 
7 

22 
9 

40 



127 



CRIMINAL BUSINESS. 



District courts. 


Pending 

Julv 1, 

1905. 


Received 
during 
1905-6. 


Disposed 
of. 


Pending 

July 1, 

1906. 


Appeals 
taken. 


Convic- 
tions. 


Acquit- 
tals. 


Jury trials. 


1904-5. 


1905-6. 


Aguadilla 


24 
25 
4 
20 
35 
106 


46 
93 
301 
111 
182 
392 


70 
98 
283 
115 
162 
410 




1 
42 
9 
8 
8 
3 
12 


35 

53 

85 

80 

106 

291 

118 


35 
45 
31 
35 
56 
80 
62 


56 
75 
25 
83 
52 
12 
49 


61 
44 
44 
41 
43 
36 
74 




20 

22 
16 
55 
88 
36 


Guayama 

Huinacao 

Mavaguez 

Ponce 


San Juan 


57 j 199 | 220 


Total 


271 j 1,324 | 1,358 


237 83 


768 


344 


352 


343 



Business transacted by the municipal courts of Porto Rico during fiscal year 1905-6. 

CIVIL BUSINESS. 



Municipal courts. 



Aguadilla 

Anasco 

Arecibo 

Barros 

Bayamon 

Cabo Rojo... 

Caguas 

Carolina 

Cayey 

Coamo 

Fajardo 

Guayama 

Huinacao 

Lares 

Manati 

Mayaguez 

Ponce 

San German. 

San Juan 

San Lorenzo . 
Utuado 



Yabucoa . 
Yauco... 



Total. 



Per ding 

Julyl, 

1905. 



10 
11 

2 
10 

3 

33 
10 
22 
23 
35 
133 
19 
46 
16 
13 

3 

7 
30 



Received 
during 
1905-6. 



50 

90 

63 

7 

71 

57 

152 

70 

40 

76 

55 

102 

99 

96 

131 

198 

207 

101 

688 

82 

86 

14 

64 

59 

2,656 



Disposed 
of. 



46 
41 
72 
9 
32 
54 

123 
52 
30 
62 
43 
89 
73 
84 
94 

219 

287 
94 

734 
37 
93 
8 
42 
62 



Pending 

Julyl, 

1906. 



734 



Appeals 
taken. 



3 
1 
5 
3 
4 
9 

10 
6 

22 
9 
6 

32 
3 
5 
1 
8 
4 

166 



64 



PORTO RICO. 



Business transacted by the municipal courts of Porto Rico during fiscal year 1905-6 — 

Continued. 

CRIMINAL BUSINESS. 



Municipal courts. 



Pending 

July 1, 

1905. 



Aguadiila 

Afiasco 

Arecibo 

Barros 

Bay anion 

Cabo Rojo... 

Caguas 

Carolina 

Cayey 

Coamo 

Fajardo 

Guayama 

Humacao 

Lares 

Manati 

Mayaguez 

Ponce 

San German. 

San Juan 

San Lorenzo. 

Utuado 

Vega Baja... 

Yabueoa 

Yauco 



Received 

during 

1905-1906. 



Total. 



30 
41 
62 
41 
41 
62 
19 
62 
37 

5 
369 

1 
20 
56 
82 
52 
39 
75 



1,194 



1,014 
567 

1,088 
297 
776 
381 

1,254 
889 
742 
808 
839 

1,363 

1,683 
597 

1,026 
993 

2,421 
430 

1,361 
880 

1,010 
538 
701 

1,490 



23, 148 



Disposed 
of. 



1,014 
547 

1,095 
291 
776 
358 

1,218 
930 
682 
792 
838 

1,361 

1,590 
647 

1,040 
998 

2,391 
407 

1,371 
885 

1,070 
558 
710 

1,341 



22,910 



Pending 

July 1, 

1906. 



122 

57 

42 
64 
112 
12 
23 



399 
24 
10 
51 
22 
32 
30 

224 



Appeals 
taken. 



1,432 



Number 
of con- 
victions. 



6 
3 

4 
11 
10 
10 

7 
15 

2 

8 
17 
20 
70 
25 j 
31 

8 

5 

2 

1 
11 



579 
357 
815 
193 
528 
188 
741 
594 
433 
531 
456 
803 

1,149 
291 
667 
723 

1,536 
168 
944 
449 
433 
342 
427 
774 



14,121 



Num- 
ber of 
acquit- 
tals. 



412 
190 
230 
94 
248 
157 
477 
336 
249 
230 
296 
477 
441 
259 
373 
184 
434 
116 
338 
387 
555 
216 
189 
290 



7,178 



Jury trials for fiscal year 1905-6 in the district courts of Porto Rico. 





Convic- 
tions. 


Mistrials. 


Acquit- 
tals. 




26 
24 
25 
23 
23 
16 
45 




35 






20 




7 


12 




10 






20 






24 






29 








Total • 


182 




150 









Felony cases tried for years 1904-5 and 1905-6 in the district courts of Porto Rico. 





Fiscal year 1904-5. 


Fiscal year 1905-6. 




Filed. 


Jury 
trials. 


Con- 
vic- 
tions. 


Ac- 
quit- 
tals. 


Homi- 
cides. 


Mur- 
ders. 


Filed. 


Jury 
trials. 


Con- 
vic- 
tions. 


Ac- 
quit- 
tals. 


Hom- 
cides. 


Mur- 
ders. 


Aguadiila 

Arecibo 


188 i 56 
181 ! 75 
103 25 


36 
32 
15 
37 
21 
5 
31 


20 
43 

8 
23 
37 

6 
17 


2 

3 

8 
5 

20 


2 
1 

4 
4 
5 
3 
9 


46 

93 
251 
111 

61 
297 

74 


61 
44 
aU 
33 
43 
40 
74 


26 
24 
25 
23 
23 
16 
45 


35 
20 
12 
10 
20 
24 
29 


1 
3 
4 

10 
2 
6 

13 


1 

3 




154 
93 
240 
127 


60 
58 
12 
48 


1 




3 




2 











Total 


1,086 


334 


177 


154 


38 


28 


933 


339 


182 


150 


39 


10 











1 7 mistrials. 



Exhibit C. 

REPORT OF THE TREASURER OF PORTO RICO. 

Treasury Department of Porto Rico, 

Office of the Treasurer, 

San Juan, July 1, 1906. 
Sir: I have the honor to make the following report of the opera- 
tions of the treasury department of Porto Rico for the fiscal year 
ending June 30, 1906 : 

INSULAR FINANCES. 

From the financial standpoint the fiscal year 1905-6 has been the 
most favorable one since the organization of civil government. 
This has been due to the excellent results given by the excise portion 
of the revenue law as revised in 1905, to the economy displayed in 
the voting of appropriations by the insular legislature, and to the 
very marked improvement in the industrial and commercial condi- 
tions of the island, the effect of which latter can be seen in the 
increased revenues obtained from almost every source. Appended 
to this report are the usual tables, giving in detail the receipts of the 
insular government from all sources. These tables in great part 
cover not only the last but preceding fiscal years, and thus make it 
possible to follow the movement of receipts, by sources, from year to 
year and month to month. 

The following statement shows the amount of money in the cus- 
tody of the treasurer on June 30, 1906, and the institutions in which 
it was deposited, also the amount due from municipalities and school 
boards, on account of loans made to them from the insular treasury : 

To the credit of insular revenues $405,215.18 

To the credit of trust funds 213, 091. 23 

Total 618, 306. 41 

Deposited with : 

American Colonial Bank of Porto Rico 368,306.41 

First National Bank of Porto Rico 200, 000. 00 

Banco Territorial y Agricola de Puerto Rico 50, 000. 00 



Total 618, 306. 41 

Due from municipalities and school boards on account of loans 
made to them . 157, 263. 55 

From this statement it will be seen that on June 30, 1906, there was 
in the possession of the treasurer of Porto Rico a total of $618,306.41. 
Of this amount $405,215.18 stood on the books to the credit of insular 
revenues. Of this amount, however, a certain portion did not consti- 
tute insular funds, properly speaking, as included in it are receipt 1 ' 
from property taxes collected by the insular treasury on behalf of 
S. Doc. 135, 59-2 5 65 



66 PORTO RICO. 

the municipalities and school boards which, at the time the books 
were closed, on June 30, had not been paid to those bodies. If the 
amount thus due the municipalities and school boards is deducted 
from the item " funds standing- to the credit of insular revenues " 
and is added to the item " trust funds," which represents funds not 
available for insular expenditures proper, the account would stand 
as folloAvs: 

Cash available for insular expenditures $370,758.93 

Trust funds 247,547.48 

Total 618, 306. 41 

The real cash balance of the insular treasury on June 30, 1000, was 
therefore $370,758.93. To obtain the assets of the insular treasury on 
that date, however, there should be added to this sum the amount due 
from municipalities and school boards on account of loans made to 
them from the insular treasury. This amount constitutes a real asset 
of the treasury, since it is all repayable by the municipalities and 
school board in annual installments running for short periods of 
years, and such repayment is absolutely secured, as the insular gov- 
ernment collects the general property tax for these bodies and, 
according to the provisions of the contract under which the advances 
have been made, the payment of the installments is made by the 
insular government retaining the necessary amount from such tax 
collections. On June 30, 1906, the amount due from these bodies on 
account of such loans was $157,263.55. Adding this to the real cash 
balance of the insular treasuiy, $370,758.93, it will be found that the 
insular treasury closed the fiscal yew with a surplus of $528,022.48. 
The similar figure for June 30, 1905, was $500,604.23, and for June 30, 
1904, $332,695.87. 

This showing is a remarkably favorable one if consideration is 
taken of the fact that the act of March 9, 1905, revising the excise 
features of the general revenue law provided that the increased rate 
of taxes should not go into effect until July 1 following, and that, 
consequently, during the period elapsing from the passage of the act 
to the latter date the manufacturers of liquors and cigars took ad- 
vantage of this provision and maufactured and paid the tax on as 
large a product as possible. The result was that at least $300,000 was 
received during the last three months of the fiscal year 1904-5 which 
ordinarily would have been received during the fiscal year 1905-6. 
But for this the receipts of the fiscal year 1905-6 would have exceeded 
expenditures by from $300,000 to $350,000. 

Table No. 1, appended to this report, gives a consolidated statement 
of the balances on hand, payments made to and expenditures made 
from the insular treasury from month to month. 

As is well known, the insular treasury, in addition to collecting the 
revenues of the insular government, also acts as the agent of the 
municipalities and school boards for the collection of the quota of 
general property taxes apportioned to them. The receipts of the 
treasury are also swelled by repayments, transfers, the deposit of 
cash bonds, and other transactions. The result of this is that the 
figures showing the payments made to the insular treasury give no 
information relative to the actual income of the insular government 
proper. In tables Nos. 2 and 3 the effort has been made to eliminate 



PORTO RICO. 67 

all receipts of the treasury not constituting insular income proper, 
and thus to present a showing of the actual net income of the insular 
government, from which its expenditures have to be met. The pre- 
paration of this table has been an exceedingly difficult one, on account 
of the various complications resulting from changes in the methods 
of bookkeeping rendered necessary by changes in legislation, repay- 
ments, refunds, transfers, and the like. Thus, for example, during 
certain years receipts from the insular telegraph service and from 
harbor and dock fees were covered into the treasury as special trust- 
fund receipts, and expenditures were then made for these two serv- 
ices from such receipts, while in other years such receipts were cov- 
ered directly into the treasury and provision was made for the sup- 
port of the services by appropriation in the ordinary way. It is be- 
lieved, however, that success has been attained in the preparation of 
these tables and that they represent a correct showing of insular re- 
ceipts for the five fiscal years 1901-2 to 1905-6. Table No. 3 only 
covers the four years from 1902-3 to 1905-6, because prior to July 1, 
1902, the accounts of the government were kept in such a way that it 
was a practically impossible task to itemize the payments made to the 
treasury in the form of miscellaneous payments. These two tables 
are presented in a slightly different form from that of corresponding- 
tables given in preceding reports, and one or two slight errors that 
crept into the earlier tables have been corrected. 

If these two tables are examined it will be found that practically 
every source of income of the insular government was more productive 
during the fiscal year 1905-6 than during any preceding year. The 
only exception to this is that of receipts from excise-stamp sales, 
which amounted to only $1,420,696.90, as against $1,505,464.13 in the 
fiscal year 1905-6. The reason for this difference has already been 
explained and consists in the fact that during the months of March, 
April, May, and June of 1905 manufacturers of liquors and cigars, in 
order to avoid the higher rate going into effect on July 1, paid taxes 
to the amount of over $300,000 on products which ordinarily would 
have been manufactured in the fiscal year 1905-6, and that year, con- 
sequently, would have received the credit for the taxes paid upon 
them. This can plainly be seen from the very high receipts obtained 
from excise-stamp sales during the months of March, April, May, and 
June of 1905 and the very low receipts obtained during the first few 
months of the fiscal year 1905-6. Making due allowance for this, it 
will be seen that the excise portion of the revenue law in its new form 
is productive of at least $300,000 more revenue than was obtained 
under the law as it previously stood. One of the most gratifying- 
features of this change is that not only have expectations relative to* 
the increased receipts to be obtained been more than justified, but that 
in consequence of the changes made in the administrative features of 
the law it has been possible to obtain this increased revenue with far 
less friction than was encountered in securing the smaller revenue in 
the past. The department is now able to maintain such a rigid super- 
vision and control over the manufacture of alcoholic liquors that it is 
exceedingly difficult for a manufacturer to commit fraud, and the 
department believes that practically no rum or other alcoholic liquor 
is now manufactured that does not pay the tax. 

The system of having taxes upon cigars paid by the affixture of 
stamps to the package has also worked well in practice. Receipts 



68 



PORTO RICO. 



from cigars during the fiscal year 1905-6 amounted to $128,722.15, 
as against §5109,665.07. As the change in the rate on cigars was only 
from $1.80 to $2 per thousand, and every effort, as described above, 
was made to take advantage of the lower rate prior to the going into 
effect of the higher rate, this increase of over $19,000 must be very 
largely attributed to the increased extent to which the department 
under the new system has been able to prevent the sale of contraband 
cigars. Owing to the widespread extent of the tobacco industry, 
and the extent to which cigars are made in small establishments, 
the department is unable with the force at its disposal entirely to 
prevent the sale of cigars that have not paid the tax. There is a 
tendency, however, for the tobacco industry to become concentrated 
in fewer hands, and with this concentration, and the increased experi- 
ence of the treasury agents, it is believed that the amount of cigars 
illicitly manufactured and sold is being steadily diminished. 

Turning to other items, it will be seen that the insular govern- 
ment receved $199,226.21 from its quota of the general property tax, 
as against $178,811.15 received during the fiscal year ending June 
30, 1905. This results partly from the increase in the actual value 
of propert} 7 as assessed for taxation, but chiefly from the greater 
extent to which the taxpayers have been able to pay their taxes 
promptly. In no respect has the increased prosperity of the island 
been more apparent than in the greater ease with which the property 
taxes, not only for the current fiscal year, but for prior years that 
were delinquent, have been collected. Eeceipts from inheritance 
taxes increased from $13,778.18 to $14,413.68; from the taxes on 
insurance premiums, from $10,160.14 to $12,070.32; and from mis- 
cellaneous receipts, from $153,711.57 to $192,035.83. As regards the 
latter, attention should be especially directed to the improved show- 
ing of the insular telegraph service, the increase in receipts from that 
service being from $34,091.22 in 1904-5 to $52,075.84 in 1905-6. 

But few matters of importance have arisen during the year affect- 
ing the administration of the affairs coming under the jurisdiction 
of the treasury department. The work of assessing new property, 
revising the assessments of property already assessed, the correction 
of the tax rolls so as to take account of such changed assessments 
and the changes that have taken place in the ownership of real 
property, has been carried on with especial absence of trouble and 
of friction with or complaints on the part of tax payers. In but 
a very small percentage of cases have appeals been made from the 
action of assessors to the board of review and equalization. The latter 
body was thus able to hear all persons desiring to appear before the 
aboard personally and to pass upon all appeals made to it in six 
days of actual session. The government was fortunate in again 
having the services of Mr. Carlos Cabrera, who has been a member 
since its organization and is thus thoroughly familiar with the pro- 
cedure to be followed and the position taken by the board in the 
past. Mr. Francisco de P. Acuha, who served as the other appointed 
member of the board during the fiscal year 1904-5, was unable to 
continue on the board owing to his absence from the island. His 
place was filled by Mr. Luis Toro, who brought to the board an 
exceptionable knowledge of property values on the island. 

On the other hand, the administration of the service of tax collection 
has given rise to a great many questions difficult of solution growing 



POETO RICO. 69 

out of the attempt to enforce the payment of delinquent taxes through 
attachment proceedings. The greater number of these are due to 
the defective system of land titles in the island, the extent to which 
land is jointly owned, and the consequent impossibility for the 
department in* all cases to assess the land to the true owner. The 
failure to do this is not known until attachment proceedings are insti- 
tuted, and then it is difficult to correct the error. The satisfactory 
adjustment of these questions is rendered especially complicated by a 
conflict which exists between the provisions of the general revenue law 
relative to the extent to which taxes shall constitute a lien upon real 
estate and a provision of the Civil Code relative to preferred liens. 
The intent of the former is to make all taxes upon real property a lien 
upon the property against which they are assessed until they are paid. 
The provision of the Civil Code that has been referred to, however, 
following the provisions of the old Spanish law, limits such lien 
where the property is transferred to another person to the taxes due 
for the last fiscal year. Under this provision a person can relieve a 
property of all taxes, except those for the las year, by having the 
title to it transfered to another person. It happened that the act 
adopting the Civil Code was approved on the same date as the last 
general revision of the property-tax law, and the attorney-general of 
Porto Rico has ruled that it, rather than the provisions of the revenue 
law should govern. The effort was made at the last session of the 
legislature to have this unfortunate provision of the Civil Code 
changed and also to modify certain provisions of the general revenue 
law so as to make more clear the authority of the treasurer to reassess 
for past fiscal years property that had failed of assessment or in the 
assessment of which some error had been commited. Unfortunately, 
however, success was not obtained in this effort. It is believed that 
this whole question of the proper assessment of taxes upon property, 
as well as the whole vexed question of land titles and boundaries, can 
not be settled with complete satisfaction until the island is prepared 
to adopt the system of land registration modeled on that known as 
the Torrens land registration system, and authorize the execution of a 
The only act of the legslature affecting in any important particular 
the financial policy or affairs of the insular government during the 
year was that authorizing the sale by the insular government of bonds 
to the amount of $1,000,000, the proceeds of which should be devoted 
to the continuation of the work of constructing roads throughout the 
island. The act authorizing the sale of these bonds provides that 
they shall bear interest at the rate of 4 per cent, shall be sold at not 
less than par, and shall run for a period of not to exceed twenty 
years. The act directs the collection of a special tax upon property 
of one-tenth of 1 per cent, for the purpose of realizing funds with 
which to meet the interest on the bonds as it falls due and the pay- 
ment of the bonds upon their maturity, Steps have been taken 
looking to the sale of these bonds, and it is probable that they will be 
completed sometime during the fall of 1906, in which case the bonds 
will be dated January 1, 1907. In view of the fact that the insular 
government now has no indebtedness, that its receipts in the past 
have exceeded its expenditures, and that its available resources have 
steadily increased from year to year, it is confidently expected that it 
will be possible to sell these bonds on very favorable terms. 



70 PORTO RICO. 

MUNICIPAL FINANCES. 

The steady improvement in the financial condition of the munici- 
palities of the island, as shown by the tables appended to this report 
giving- the receipts and expenditures of the municipalities in detail 
and the amount of their outstanding obligations at the close of the 
fiscal year, is no less gratifying than the favorable showing of insular 
finances. In no year have the municipalities made a more marked 
progress than in the year to which this report relates. This is shown 
in the steadily increasing income received by the municipalities, in 
the greater care shown by these bodies in the preparation of their 
budgets to keep their expenditures within their available income, and 
in the consequently steady reduction that they have been able to make 
in the amount of their outstanding indebtedness. A study of the 
table giving the expenditures of the municipalities in detail during 
the fiscal year, in comparison with the similar table for prior fiscal 
years contained in the preceding reports of the treasurer of Porto 
Rico, shows also that not only are the municipalities, to a constantly 
increasing extent, keeping the total of their appropriations within 
their resources, but that the money that is expended is being more 
and more applied to purposes of direct public utility, such as educa- 
tion, the construction of waterworks, markets, slaughter houses, and 
other public buildings, public-health services, etc. 

In the four years since the system of uniform accounting and report- 
ing to the treasurer of Porto Rico has been in force the available 
income of the municipalities has increased by nearly half a million 
dollars. The actual receipts of all the municipalities during the 
fiscal years 1902-3 to 1905-6, inclusive, were as follows : 

1902-3 $1, 113, 237. 35 

1903-4 1, 139. 304. 70 

1904-5 1. 33S, 045. 4S 

1905-6 1. 606, 983. 10 

These figures are exclusive of the amounts received by the mu- 
nicipalities in the way of loans from the insular treasury. It will 
be seen that the increase in receipts was especially great during the 
year just closed, such increase amounting to $268,937.62. The in- 
creased receipts obtained from the general property tax are respon- 
sible for the greater part of this increase, although the municipali- 
ties received a larger income in 1905-6 than in the preceding year 
from almost every one of their sources of income. 

The financial progress of the municipalities, however, is probably 
best shown by the table giving the amount of their floating indebt- 
edness and their total indebtedness of all kinds at the end of each 
fiscal year. As regards the first it will be seen that the floating in- 
debtedness of the municipalities, which on June 30, 1901, amounted 
to $501,128.15, on June 30, 1906, amounted to only $77,879.31, a re- 
duction during the year of $63,547.15. If the record of the indi- 
vidual municipalities be studied, it will be seen that with few excep- 
tions all succeeded in reducing their floating indebtedness to a greater 
or less extent. Twenty-five municipalities closed the year with no 
outstanding floating indebtedness, and seven others had an indebt- 
edness of less than $100 each, which for the most part represented 
merely bills outstanding that had not actually been paid when the 
books were closed. The total indebtedness of the municipalities of 



PORTO RICO. 71 

all character, including under this head the amounts still due on 
account of certificates of indebtedness outstanding, loans made to 
them from the insular treasury, and floating obligations, less cash on 
hand, amounted on June 30, 1906, to $170,661.68. The correspond- 
ing figure for June 30, 1905, was $211,910.72. This showing is even 
more favorable than would appear from a comparison of these 
figures, because account should be taken of the fact that the obli- 
gations outstanding on account of loans received from the insular 
treasury during the fiscal year 1905-6 represent obligations incurred 
for the execution of public works to a much greater extent than was 
the case during the preceding fiscal year. 

The policy of making adyances to the municipalities and school 
boards from the insular treasury, repayable in annual installments, 
that was inaugurated during the fiscal year 1904-5, has been con- 
tinued during the fiscal year 1905-6 with excellent results. Not only 
has it permitted those municipalities that were burdened with heavier 
outstanding obligations than they were able to meet in a single year 
to get upon a footing where they can meet their obligations as they 
fall due, but it has permitted a large number of municipalities and 
school boards to provide for public works of importance that other- 
Avise it would have been impossible for them to have undertaken. 
These public works consist for the most part in the construction of 
aqueducts and waterworks in the populated centers, the erection of 
city halls, markets, slaughterhouses, schoolhouses, and the like. 
The cost of these works, on the one hand, is greater than can possibly 
be met by the municipalities and school boards from their incomes 
for a single fiscal year; and, on the other, are too small to warrant 
the incurring of a bonded indebtedness. But for the policy of 
making these loans, therefore, it would be impossible for these very 
necessary works of public improvement to be undertaken. Tables 
Xos. 12 and 13 give a list of all of the loans of this character that 
have been made up to June 30, 1906, indicating in each case whether 
the loan was for the payment of indebtedness or the execution of 
public improvements, its amount, and the balance outstanding on 
June 30, 1906. It will be seen from these tables that loans have been 
made to municipalities to the amount of $185,961.82, and to school 
boards to the amount of $52,492.33, or a total to the two classes of 
bodies of $238,454.15. Of this amount, however, $61,593.06 has been 
repaid by the municipalities and $19,597.54 by the school boards, or 
a total of $81,190.60, thus leaving outstanding and due on June 30, 
1906, from the municipalities $124,368.76 and from the school boards 
$32,894.79, or a total of $157,263.55. It should especially be noted 
that, while the loans made during the fiscal year 1904-5 were, for 
the most part, to enable the municipalities and school boards to fund 
their floating indebtedness, those made during the fiscal year 1905-6 
were chiefly for works of public improvement. To a very consid- 
erable extent these public improvements are of a productive char- 
acter, with the result that the municipalities will not only obtain the 
improvements, but will have their sources of income increased; or. 
what amounts to the same thing, in the case of the school boards will 
be relieved from the payment of rent by making use of school build- 
ings constructed out of the proceeds of the loans. 

In concluding this account of the finances of the municipalities, it 
is of interest to note that the four municipalities of San Juan, Ponce, 



72 PORTO KICO. 

Mayaguez, and Arecibo, that incurred bonded indebtedness on Jan- 
uary 1, 1902, to a total amount of $1,100,000, have been able to meet 
all of their obligations relative to the prompt payment of interest on 
such indebtedness and the annual deposits required to be made to 
their respective sinking funds for the extinguishment of the debt 
upon its maturity. A total of $200,000 has thus been set aside by 
the municipalities for the extinguishment of their bonded indebted- 
ness. After making such payments, and meeting the interest charges 
as they accrued, the four municipalities had. on June 30, 1906, bal- 
ances on hand with which to meet such charges in the future of 
$28,029.44, in the case of San Juan; $11,810.78, in the case of Ponce; 
$9,240.21, in the case of Mayaguez; and $7,299.11, in the case of 
Arecibo. The money standing to the credit of the sinking funds is 
deposited with the American Colonial Bank of Porto Rico, as custo- 
dian of such funds, and earns interest at the rate of 3.3 per cent per 
annum, compounded semiannually. 

The general municipal law of the island was thoroughly revised 
by an act approved March 8, 1906. This law makes a number of 
important changes respecting the financial powers and duties of the 
municipalities. The more important of these are as follows : 

Under the old law municipalities were authorized to levy special 
industrial and commercial license taxes upon receiving the approval 
of the executive council. This system not only imposed a heavy 
burden of work upon the executive council, but represented a restric- 
tion upon the powers of the municipalities that was very irksome 
to them, and further resulted in license taxes lacking uniformity 
or corresponding in all cases to the relative conditions of the differ- 
ent municipal districts. The new law authorizes the municipalities 
to impose such taxes without the necessity of having such action 
approved by the executive council, but such taxes must not exceed 
the amounts fixed in a schedule incorporated in the law. This 
schedule of maximum license taxes which may be imposed by the 
municipalities was prepared with the greatest care, special account 
being taken of the general practice of the municipalities in former 
years, and special care being taken that such maximum rates should 
not exceed those that had been approved by the executive council in 
the past. In this schedule the municipalities are divided into two 
classes, according to their importance, a higher rate being permitted 
in the case of municipalities coming under the first class than in 
those coming under the second class. 

A second important change made by the new law was that relative 
to the conditions to be observed by the municipalities in the prep- 
aration of their annual budget of receipts and expenditures. As 
has been repeatedly pointed out in preceding reports, the greatest 
obstacle to sound financial administration on the part of the munici- 
palities has been their proneness to overestimate their receipts, and 
consequently to make appropriations in excess of the incomes that 
will actually be available with which to meet them. Although, as is 
shown in the tables giving the financial operations of the municipali- 
ties, steady progress has been made in this respect, nevertheless it 
was believed that the law itself should make it impossible for a 
municipality to vote money in excess of its income or to fail to 
make due provision for the payment of all of its obligations. These 
considerations are met in the new law by the provisions that each 



POETO RICO. 73 

municipality in framing its budget shall first make provision for 
the meeting of all outstanding obligations of every description, and 
that no municipality shall make appropriations for a fiscal year in 
an amount in excess of twice its actual receipts from current income 
during the first six months of the preceding fiscal year plus the 
amount of any surplus that it might have had on hand at the begin- 
ning of such preceding fiscal year over and above obligations then 
outstanding. Provision is made for the enforcement of these pro- 
visions by the power given to the attorney-general of Porto Rico, 
upon the matter being brought to his attention by the treasurer of 
Porto Rico or in any other way, to apply to the proper district court 
for a mandamus to compel any delinquent municipality to comply 
with all of the obligations in this or any other respect imposed upon 
it by law. 

A change was also made in respect to the procedure to be followed 
in the preparation and voting of budgets. Under the law as it 
previously stood the alcalde prepared the budget and submitted it to 
the municipal council for the latter's approval. Under the new law 
the alcalde merely draws up an estimate of receipts and expenditures, 
which he submits to the municipal council for the latter's informa- 
tion, and the budget itself is prepared by that body. With this 
estimate the alcalde must also submit a statement showing in detail 
the receipts of the municipality from all sources during the preceding 
fiscal year and during the first six months of the current fiscal 
year, together with a statement showing in detail the expenditures of 
the municipality during the preceding fiscal year. The municipal 
council thus has before it all of the data and information upon which 
to base intelligent action. The budget as at first prepared by the 
municipal council must be posted for public inspection in a con- 
spicuous place in the city hall for a period of ten days, in order that 
any person may make objection thereto in writing to the council. 
After the expiration of this period the municipal council must again 
consider the budget in connection with any objections that may have 
been made to it, and as thus framed send it to the alcalde for his 
approval. The alcalde must approve such budget, unless he thinks 
that the laws of Porto Rico have been violated thereby or that the 
expenditures proposed exceed the probable receipts of the munici- 
pality, in either of which cases he must return the budget to the 
municipal council with a statement of his objections. The municipal 
council may agree to the objections of the alcalde and modify the 
budget accordingly, or it may pass the budget over the objections of 
the alcalde, provided that two-thirds of the entire membership of 
such council vote for such passage. If such budget, however, is 
contrary to law the attorney-general can compel its modification, as 
above described. 

The effort was also made to provide against the possible contin- 
gency of a municipality becoming unable to meet its financial obliga- 
tions as the result of public disasters or for other reasons. In such 
cases it is provided that the municipal council may, by ordinance 
duly enacted, apply to the governor of Porto Rico for the appoint- 
ment of a receiver for the municipality, which receiver, upon his 
appointment, is authorized to administer the affairs of the municipal- 
ity under the general direction of the executive council of Porto 
Rico until such time as the municipality is in a position properly to 



74 PORTO RICO. 

provide for all of its obligations. Upon the failure of the municipal 
council to take action similar action may be made by a majority of 
the resident taxpayers upon property in the municipality. It is 
extremely unlikely that resort will have to be had to this provision 
in other than exceptional cases. 

One of the most important provisions of the new law was that 
abolishing the existing boards of road supervisors. The system of 
road districts was created by act of March 1, 1902, which provided 
for the division of the island into seven road districts correspondino- 
to the seven election districts, and the election in each, at the time of 
the regular biennial elections, of a board of road supervisors. This 
act, as subsequently amended, provided that 8 per cent of all collec- 
tions on account of general-property taxes assigned to municipali- 
ties should be paid over to such boards. The theory on which this 
system was created was that it would be possible to secure as mem- 
bers of the board prominent taxpayers and landowners who would be 
in a position and be willing to devote themselves to the work of. road 
improvement to a greater extent than could be expected of the munic- 
ipal councils, and that also roads running through more than one 
municipality could be better provided for. The act, however, worked 
badly from the start. It necessitated the creation of a special 
machinery, the expenses of which absorbed a considerable portion of 
the revenues of the boards. It at the same time weakened the powers 
and responsibilities of the municipalities. Constant friction also 
resulted in the selection of roads to be improved, it being claimed by 
many municipalities that other municipalities received a more than 
proportionate part of the benefit of the funds expended. In view of 
these facts a provision was inserted in the municipal law ordering the 
abolition of the boards on and after July 1, 1906, and providing that 
the affairs of the old boards should be wound up and their outstand- 
ing resources and obligations apportioned among the respective munic- 
ipalities. In abolishing these boards, however, the legislature de- 
sired to retain the obligation that municipalities should devote a 
portion of their income to road improvement work. It accordingly 
provided in the new law that the 8 per cent of the general-property 
taxes formerly going to the road districts should be covered by each 
municipality into a special fund to be known as " road fund," and 
that the amounts so credited to these funds should be available only 
for the construction and repair of municipal roads outside of the 
urban portions of the municipalities. 

In pursuance of the provisions of law relative to this matter steps 
were immediately taken by the treasury department looking to the 
examination and liquidation of the accounts of such boards. Tables 
Nos. 14 and 15 gives a summary of the financial operations of these 
boards since their organization to June 30, 1906, and a statement of 
their outstanding assets and liabilities on that date, which, according 
to the provisions of the law directing the winding up of the affairs of 
the boards, will be apportioned among the municipalities included 
within the respective road districts. The first of these two tables is 
an interesting one as showing at a glance the results of this experi- 
ment in local government. From it can be seen how badly the system 
worked in practice, The total receipts of the boards during the four 
years amounted to $220,889.55. Of this amount $45,892.24, or 20.78 



POKTO EICO. 75 

per cent, went for salaries and office expenses. Although this is a very 
high percentage, the record would not be so bad if the $162,672.44, 
which according to the books was expended on the actual work of 
road construction and maintenance, had been wisely and economi- 
cally expended. It is the general testimony, however, that this 
money was in great part so inefficiently expended that a very in- 
adequate return was obtained in the way of permanent improvements 
to the municipal roads of the island. It is, of course, impossible 
to say whether the municipalities, that will now have the expenditure 
of these funds, will make such expenditures more wisely or not, 
but it is certain that the whole, or the greater part, of the money 
that went to the payment of salaries and office expenses of the late 
boards will be saved. There is a strong probability, however, that, 
in view of the new spirit now actuating the municipalities to' make 
a good showing in the management of their affairs, and to devote 
as large a part as possible of their expenditures to works of public 
utility, a greater return will be received from the expenditure of 
these funds than was the case in the past. 

The only change relative to the system of uniform municipal 
accounting and reporting that has been in force since July 1, 1902, 
was that providing that no change should be made in such system 
by the treasurer of Porto Rico without the approval of the executive 
council. 

In concluding this report, I desire to express again my appreciation 
of the valuable services rendered by my chief assistants : Mr. Benja- 
min R. Dix, assistant treasurer; Mr. Clifford W. Perkins, chief of 
the bureau of accounts; Mr. Alfred Solomon, chief of the bureau of 
internal revenue ; Mr. Andrew Hoist, chief of the bureau of munici- 
pal finance; Mr. Thomas L. Jett, chief of the bureau of disburse- 
ments; Mr. David A. Skinner, chief of the division of assessments, 
and Mr. Ransom P. Xichols, chief of the division of property tax 
collections. The work of the department is so organized as to 
throw a large amount of responsibility upon these officers in the 
dispatch of the business, and the efficient manner in which they 
have performed their duties is chiefly responsible for the smooth 
working of the department and the absence of administrative diffi- 
culties that have marked the year just closed. 
Respectfully, 

W. F. WlLLOUGHBT, 

Treasurer. 
Hon. 43eekman Wintheop, 

Governor of Porto Eico, 

Government House, San Juan, P. R. 



76 



POKTO RICO. 




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92 PORTO RICO. 

Table No. 9. — F loating indebtedness of municipalities June 30, 1901-1906. 



Municipality. 


June 30, 1901. 


June 30, 1902. 


June 30, 1903. 


June 30, 1904. 


June 30, 1905. 


June 30, 1906. 




84, 013. 56 

10,671.33 

10,785.82 

1,610.34 

3,984.00 

7,415.42 

15,372.24 

3,170.35 

2,002.47 

4,686.62 

3,859.81 

3,778.64 

13,770.93 

4,200.64 


$13,277.55 
4,739.57 
9,649.34 
2,149.28 
3,050.93 
4,327.13 
4,838.63 
3,288.20 
1,922.62 


86,545.02 
1,024.50 
3,323.36 
3,732.74 
1,032.62 
4,150.62 
8,239.40 


88,795.13 
1,713.56 
4,045.69 
4,667.70 
559.03 
5,947.34 

15,654.00 


88,201.77 1 $120.00 




Aguadiila 

Aguas Buenas 

Aibonito 


3,609.32 1,564.50 
1,955.89 1,647.02 




7,527.92 7,376.36 
9,084.54 ; 3,678.03 


Arecibo 

Arroyo 


Barranquitas 








235.98 




3,845.94 


6,359.73 
5,394.21 
4,882.36 
13,681.54 
6,163.04 
48.00 
4,569.36 
5,985.09 


2,954.86 
7,429.46 
6,309.35 
10,689.98 
8,655.04 
230.00 
3,552.11 
6, 734. 40 


2 272 01 


Bayamon 

Cabo Rojo 


2,462.63 
3,853.10 
11,250.35 
3,697.66 


2^370.47 '941.37 
2,549.36 1 496.70 
4 761 49 1 










Cayey 


6,385.49 
5,331.09 
4,607.86 

135.60 
2,169.24 
3,390.64 
5,672.63 
11,838.24 
6,386.28 
3,159.57 

924.28 

3,974.53 

2,184.70 

4,310.20 

12,474.66 

486.67 
2,240.39 
1,543.74 
6,427.89 

627.00 
6,801.22 
4,972.69 
2,903.08 
36,537.47 
4,883.86 
2,902.15 
1,861.01 
1,950.23 
3,882.59 
6,181.44 
103,288.76 
2,376.47 
6,5"4.57 
1,457.92 
1,584.42 

446.06 
2,588.44 
3,355.71 
75,642.69 
2,074.11 
4,559.75 


1,767.38 
4,078.66 
3,321.88 

231.89 
2,527.89 
2,090.50 
4,106.26 
4,043.75 
2,233.50 

435.36 
1,151.36 
2,256.33 
2,907.50 
3,469.97 
9,985.80 

125.00 
1,632.74 
10,905.33 
1,277.33 

143.98 
7,927.76 
5,712.02 

532.84 
2, 050. 14 
3,782.94 
1,973.94 

317.43 
1,454.67 
2,257.02 
4,028.56 
194,236.16 
1,423.67 
5,960.29 

303.23 

617.30 

534. 47 


1,699.25 
6 320 19 








Cidra 






1,586.69 
1,549.71 


178.34 
3,968.79 






377.82 




Corozat 




Dorado 








8.28 




3,072.86 
5,691.00 


3,160.84 
8,393.84 




Guayama 




Guayanilla 




Gurabo 








Hathio 










813.32 
3,157.46 
6,672.01 


31.80 
3,116.35 
10,108.72 


1,291.25 4,104.25 
1 140 07 261 68 


Isabeia 


Juana Diaz 

Juncos 


8^920.70 3,184^99 




2,522.12 
1,559.00 
7,648.80 


2,999.23 
1,049.75 
6,955.71 


834 56 834 56 


Lares 


1,916.28 i 645.67 
7,922.62 2,697.36 


Las Marias 

Loiza :.. 


Manati 


11,335.41 
4,323.17 


10,692.54 
2,823.18 


8,266.37 
2, 725. 40 


6,825.93 
1 514 45 


Maricao 


Maunabo 




Mayaguez 

Moca 


25,476.16 


27,303.09 


14,315.90 


7,606.20 




1,875.80 
1,757.84 


2,247.35 
1,747.31 


4,279.36 ! 3,272.92 
30 75 '■ 40 00 


Naguabo 


Naranjito 




Patillas 


762.34 


1,576.29 


474.12 ffiW.nn 


Pefiuolas 




P3.72 

A ORd 34 


Ponso 


40,552.88 


57,189.71 


3 409 43 


Quebradillas 




Rineon 








7C.00 

1,663.40 


Rio Grande 

Rio Piedras 


2,432.18 

27.32 

2,319.99 


1,000.00 

17.99 

3,395.72 


1,633.93 

377.63 

2,698.52 


Sabana Grande... 
Salinas 


24.27 


San German 

San Juan 


4,117.53 
7,585.76 
3,031.15 
3,0'8.21 
718.71 
4,199.52 
1,448.42 
1,872.26 
6,319.02 
3,5^6.50 
6,033.68 


3,120.43 
14,813.86 
3,838.88 
7,868.45 
1,465.91 
5,437.84 


1,972.28 
8,201.98 
2,810.91 
6,643.40 


4,191.90 
2,422.21 
3, 744. 43 
2,258.36 
1,316.81 


2,072.56 


San Lorenzo 

San Sebastian 

Santa Isabel 


2,759.69 
327.32 
930.89 


Toa Alta 


5,746.34 

428.53 

4,597.20 

15,932.35 

4,836.27 

4,154.47 

603.51 

3,764.20 

13,574.77 


4,048.08 


3,230.79 2,822.63 


Toa Baja 


Trujillo Alto 






i 


Utuado 

Vega Alta 


7,602.12 


.6,322.59 


4,795.65 


2,061.92 
430.62 


Vieques 


3,904.95 


3,940.87 


924.42 

19.69 

2,129.87 

435.02 


10.80 




2,423.94 
9,640.25 


3,817.06 
10,371.81 


2,772.86 
11,579.24 




Yauco 


2,645.94 


Total 


501,128.15 


418,164.73 


262,508.96 


284, 186. 41 


141,426.46 


77,879.31 



PORTO RICO. 



93 



Table No. 10. — Total indebtedness of the municipalities, June 30, 1906. 
[Exclusive of bonds of the four municipalities of San Juan, Ponce, Mayaguez, and Arecibo.] 



Municipalities. 



Adjuntas 

Aguada 

Aguadilla 

Aguas Buenas. . 

Aibonito 

Afiasco 

Arecibo. 

Arroyo 

Barranquitas... 

Barros 

Bayamon 

Cabo Rojo 

Caguas 

Camuy 

Carolina 

Cayey 

Ciales 

Cidra 

Coamo 

Comerio 

Corozal 

Dorado 

Fajardo 

Guayama 

Guayanilla 

Gurabo 

Hatillo 

Humacao 

Isabela 

Juana Diaz 

Juncos 

Lajas 

Lares 

Las Marias 

Loiza 

Manati 

Maricao 

Maunabo 

Mayaguez 

Moca 

Morovis 

Naguabo 

Naranjito 

Patilla's 

Pefiuelas 

Ponce 

Quebradillas . . . 

Rincon 

Rio Grande 

Rio Piedras. . . . 
Sabana Grande. 

Salinas 

San German 

San Juan 

San Lorenzo 

San Sebastian . . 

Santa Isabel 

Toa Alta 

Toa Raja 

Trujillo Alto ... 

Utuado 

Vega Alta 

Vega Baja 

Vieques 

Yabucoa 

Yauco 



Certificates 
of indebted- 
ness. 



Total. 



SI, 075. 73 



353.90 
485.45 
450.34 



393.56 
213.17 
247. 73 



78.16 

2,417.40 

568. 18 

33.59 
161.83 



502.68 



378. 15 
161.03 
410.44 



118.34 

385.45 



54.69 
104. 15 



425. 72 
11.00 



534.58 
247.44 



192.64 



147.86 



464.69 



609.37 



48.45 



505.56 



608. 23 
1, 234. 19 



54.19 

597.83 



Insular 
advance. 



$11,893.13 
4,000.00 
9,502.62 
2,577.73 
10,000.00 



4,200.00 
"3,"829.~38 



2,000.00 
1.493.05 



1,672.87 



6,000.00 

' 12," 666." 66 



Floating in- 
debtedness. 



$120.00 

486.10 

1, 564. 50 

1,647.02 



Total. 



Pa ednes e s bt j a ™? a *™° 
I pay same. 



7,376.36 
3,678.03 



235.98 

1,541.51 

941.37 

498.70 



423. 17 



4, 605. 13 



350.00 



8.28 
37.75 



4,104.25 

261.68 

3, 184. 99 



9,669.37 



2,372.09 
"2,"666.'66' 



20, 844. 77 
"¥, 096." 05' 



5,029.39 



1, 500. 00 



749.07 
1,671.27 



7,084.62 



14,446.76 124,368.76 



834.56 

645.67 

2,697.36 



6,825.93 
1,514.45 



7,600.20 



3,272.92 ! 
40.00 



525. 00 

53.72 

6,984.34 



72.00 
1,663.40 



24.27 
'2,"672."56' 



2,759.69 
327.32 
930.89 

2,822.63 



2,061.92 

430.62 

10.80 



2,645.94 



77,879.31 



$12,013.13 
5,561.83 
11,067.12 
4,578.65 
10, 485. 45 
7,826.70 
3,678.03 
4,593.56 

449.15 
1,789.24 
4,770.75 

574. 86 
2,417.40 

991.35 ! 
33.59 

161.83 
4,605.43 

502.68 
2,350.00 
1,871.20 

161.03 

418. 72 
1,710.62 



4, 222. 59 

647. 13 

9,184.99 

54.69 

938. 71 

12, 645. 67 

2,868.10 



7,251.65 
1,525.45 



17,269.57 

534.58 

3,520.36 

2,412.09 



2,717.64 

53.72 

27,829.11 

147.86 

2,168.05 

1,663.40 



2,207.62 



2, 537. 55 



3, 369. 06 
5,356.71 

930.89 
2,871.08 
1,500.00 

505.56 
2,061.92 
1,787.92 
2,916.26 



54.19 
10,328.39 



216,694.83 



$1,220.35 

29.90 

50.53 

.58 

1,447.41 

12.74 

189.05 

2,038.47 

482.00 

23.44 

5,391.35 

94.33 

06.75 

4b. 38 

4, 386. 24 

1,183.35 

55.72 

265.98 

4,272.50 

657.35 

838.67 

523.04 

4.61 

1,777.03 

2,011.54 

1,660.37 

1,104.50 

297.62 

23.83 

505.41 

1,013.45 

2, 430. 26 

16.71 

167.86 

2,959.64 

26.19 

34.08 

185.04 

551.94 

760.49 

108.64 

1,333.37 

207.45 

1,694.44 

1,335.20 

20,913.72 

170.61 

21.30 

6.91 

4,641.86 

.49 

3,332.44 

16.13 

6,986.19 

281.14 

445.10 

14.57 

.95 

743.61 

230. 22 

468.31 

42.91 

850.79 

1,226.30 

1, 016. 94 

904.50 



$10, 792. 78 
5.531.93 
11,016.58 
4, 578. 07 
9,038.04 
7,813.96 
3,488.98 
2,555.09 

"i," 765.' 80 



480.53 

2.350.65 

944.97 



4,549.71 
236.70 



1,213.85 
"i,'706.'6i 



3,924.97 

623.30 

8,079.58 



12,628.96 
2, 700. 24 



7,225.46 
1,491.37 



16,717.63 



3,411.72 
1,078.72 



1,023.20 



6,915.39 



2, 146. 75 
1,656.49 



2,207.13 
~~2, 521 .'42 



3,087.92 

4,911.61 

916.32 

2,870.13 

756. 39 

275.34 

1,593.61 

1,745.01 

2,065.47 



9,423.89 



85,800.79 170,661.68 



94 



PORTO EICO. 



Table No. 11. — Certificate of indebtedness of municipalities to June 30, 1906. 



Municipalities. 



Adjuntas 

Aguada 

Aguadilla 

Moca 

Aguas Buenas 

Aibonito 

Anasco 

Rincon 

Barros 

Barranquitas. 
Bayamon: 

Naranjito 

Cabo Rojo 

Caguas 

Camuy 

HatiUo 

Quebradillas.. 
Carolina 

Trujillo Alto . 
Cayey 

Cidra 

Ciales 

Comerio 

Guayama: 

Arroyo 

Humacao 

Isabela 

Lajas 

Las Marias 

Manati 

Maricao 

Morovis 

Naguabo 

Patillas 

Ponce: 

Guayanilla 

PeQuelas 

San German 

San Lorenzo a 

Juncos 

Toa Alta 

Corozal 

Dorado 

Vega Baja 

Vega Alta 

Yabucoa 

Yauco 



Total. 106, 681. 33 



Total cer- 
tificates 
issued. 



954. 51 
568. 76 
471. 24 
149. 79 
606. 14 

435. 50 
358. 58 

237. 35 
588. 78 
588. 55 

316. 23 
390. SO 
, 789. 77 
, 095. 73 
, 699. 18 
,259.98 
167. 95 
, 562. 85 
,302.18 
,781.67 
,785.75 

169. 51 

871.35 

591. 71 
659. 02 

520. 72 
674. 23 
702.91 
856. 64 
154. 33 
317. 43 
756. 58 

435. 36 
573. 74 
294. 46 
053. 62 
154. 69 
879. 69 
195. 23 
144. 19 
106. 77 
228. 12 
270. 95 
958.79 



Amount 
redeemed 
in fiscal 
year end- 
ing June 
30, 1903. 



$2,323.72 
582. 39 
1,904.08 
1,0:. 0.84 
201.63 
492. 69 
577. 21 
473. 82 
743.47 
735. 18 

316. 23 

78.16 

540. 00 

728. 04 

1,520.38 
654. 59 
33.59 
483. 73 
628. 00 
735. 89 

1,785.75 
481. 80 

1,300.72 
118.34 
190.42 
104. 15 



613. NO 

183. 17 
72.75 



435. 36 
1,573.74 

378. 60 

633. 66 
25.00 

767. 59 

393. 50 
1,247.94 
1,167.60 

358. 25 
54.19 

567. 50 



27,237.47 



Amount 
redeemed 
in fiscal 
year end- 
ing June 
SO, 1904. 



$3,011.32 
597. 05 
2,022.97 
520. 91 
351. 13 
485. 70 
430. 34 
1,142.61 

708. 33 

213. 34 



78.16 

1,114.48 

677. 45 

40.22 

174. 17 
33.59 

519. 78 
188. 68 

444. 18 



553. 74 

392. 66 
118. 34 
331. 72 
104. 14 
168. 56 
425.73 
220. 55 
241. 98 
68.87 
178. 66 



Amount 
redeemed 
in fiscal 
year end- 
ing June 
30 1905. 



520. 87 

591. 85 

25.00 

709. 95 

255. 00 

461. 46 

1,238.80 

20.00 

54.19 

597. 82 



20,034.30 



$2,752.19 
654. 55 

2,020.19 
528. 88 
345. 58 
486. 21 
450. 35 

1,206.77 
669. 52 
213. 68 



Amount 
redeemed 
in fiscal 
year end- 
ing J une 
30, 1906. 



78.16 
300. 49 
563. 22 

92.18 
135. 50 

33.59 
548. 22 
161. 83 
596. 25 



377. 66 

392. 66 
118.34 
365. 97 
104. 14 
164. 19 
425.73 



240. 50 
67.00 
192. 64 



465. 00 
609. 37 

25.00 
608. 16 
224. 67 
619. 78 
1,231.99 
620. 82 

54.19 
597. 82 



19,342.99 



$4,867.28 
659. 04 

3,524.00 
534. 58 
353. 90 
485. 45 
450. 34 

2,414.15 
219. 73 
213. 18 



78.16 

2, 417. 40 

558. 84 

46.40 
147. 86 

33.59 
505. 56 
161.84 
502. 67 



378. 16 

391. 75 
118.35 
385. 46 
104. 14 
170. 74 
425.73 
11.29 
241. 24 
108. 81 
192. 64 



465. 00 
609. 37 

25.00 
745. 54 
161. 03 
404. 57 
1,234.19 
620. 82 

54.19 
597. 82 



Amount 
Total cer- j unre- 
tificates : deemed 
redeemed. June 30. 
1906. 



25, 619. 81 



$12, 954. 51 
2,493.03 
9, 471. 24 
2,615.21 
1,252.24 
1,950.05 
1,908.24 
5,237.35 
2,341.05 
1,375.38 

316. 23 
312.64 

4,372.37 
2,527.55 
1,699.18 
1,112.12 

134. 36 
2, 057. 29 
1,140.35 
2,278.99 
1,785.75 
1,791.36 

2,477.79 

473. 37 
1,273.57 

416. 57 
503. 49 
1,277.19 
845. 64 
906. 89 
317. 43 
563. 94 

435. 36 
1,573.74 
1,829.47 
2, 444. 25 

100.00 
2,831.24 
1,034.20 
2,733.75 
4,872.58 
1,619.89 

216. 76 
2,360.96 



92,234.57 



$1,075.73 



534. 58 
353. 90 
485. 45 
450. 34 



247. 73 
213. 17 



78.16 

2, 417. 40 

568. 18 



147. 86 
33.59 
505. 56 
161.83 
502. 68 



378. 15 

393. 56 
118.34 
385. 45 
104. 15 
170. 74 
425.72 
11.00 
247. 44 



192. 64 



464. 99 

609. 37 

54.69 

48.45 

161. 03 

410. 44 

1,234.19 

608. 23 

54.19 

597. 83 



14, 446. 76 



a Formerly Hato Grande. 



POKTO EICO. 

Table No. 12 — Insular loans to municipalities. 



95 



No. 



Municipality. 



Fajardo 

Aguas Buenas , 
Comerio 



Date of loan. 



July 16,1904 
July 19,1904 
do 



Total, 1904-5. 



Vega Alta . . 
Ad juntas... 

Rineon 

Aguadilla. . . 
Naguabo... 
San Juan. . . 

Arroyo 

Coamo 

Lares 

Juana Diaz. 

Patillas 

Toa Baja . . 

Aguada 

Aibonito 



Total, 1905-6. 

Total, 1904-5 and 1905-6. 



Ponce I Sept. 14,1904 

Oct. 19,1904 

do 

Dec. 1,1904 
Jan. 23,1905 

do 

Mar. 28,1905 
Mar. 15,1905 
May 22,1905 



Vega Baja 

Yauco 

Sabana Grande . 

Bayamon. 

San Sebastian . . 

Mayaguez 

San Juan 

Vieques 



Aug. 12,1905 
Aug. 31,1905 

do 

Sept. 20, 1905 

do 

Sept. 26,1905 
Mar. 8, 1906 
Apr. 10,1906 

do 

Apr. 17,1906 

do 

May 31,1906 
June 23,1906 
do 



Purposes for which 
granted. 



Payment 
of indebt- 
edness. 



$2,800.00 
4,311.67 
2,500.00 

35,000.00 
3,000.00 

11,772.25 
3,644.27 
6,420.72 
8,669.42 

12,000.00 
2,500.00 



92,618.33 



Public im- 
prove- 
ments. 



1,000.00 

14,922.44 

2,643.49 

5,943.79 

108. 81 



1,950.03 



114. 16 
558. 00 



27,240.72 



119,859.05 



$3,000.00 



3,000.00 



77.56 



6,056.21 
2,S91. 19 

15,000.00 
4,200.00 
2,000.00 

12,000.00 
4,049.97 
2,000.00 
1,500.00 
3,885.84 
9,442.00 



63, 102. 77 



66, 102. 77 



Amount 
of loan. 



Amount 
outstand- 
ing June 
30, 1906. 



$2,800.00 
4,311.67 
2,500.00 

35,000.00 I 
3,000.00 I 

11,772.25 
3,644.27 
6,420.72 
8,669.42 

12,000.00 
2,500.00 
3,000.00 



1,000.00 

15,000.00 
2,643.49 

12,000.00 
3,000.00 

15,000.00 
4 200. 00 
2, 000. 00 

12,000.00 
6,000.00 
2,000.00 
1,500.00 
4,000.00 

10,000.00 



.343.49 



$1,672.87 
2,577.73 
1,493.05 

20,844.77 
1,671.27 
7,084.62 
2, 183. 35 
3,829.38 
5,029.39 
9,669.37 



95,618.33 56,055.80 



749. 07 
11,893.13 
2,096.05 
9,502.62 
2,372.09 



4,200.00 
2,000.00 

12,000.00 
6,000.00 
2,000.00 
i, 500. 00 
4,000.00 

10,000.00 



68,312.96 



185,961.82 | 124,368.76 



96 



PORTO RICO. 
Table No. 13. — Insular loans to school boards. 





School board. 


Date of loan. 


Purposes for which 
granted. 


Amount 
of loan. 


Amount 
outstand- 
ing j une 
30, 1906. 


No. 


Payment 
of indebt- 
edness. 


Public im- 
prove- 
ments. 


1 




July 16,1904 


$980. 00 
408. 00 
750.00 
355. 00 
806. 00 

1,411.00 
348. 00 
672. 00 

1,000.00 
734. 00 
323. 33 
925. 00 
182.00 
550. 00 
675. 00 
216. 00 

3, 680. 00 
600. 00 
492. 00 
394.00 

1, 000. 00 
425. 00 
800. 00 
862. 00 
208. 00 
700. 00 




$980. 00 
408. 00 
750. 00 
355.00 
806. 00 

1,411.00 
348. 00 
672.00 

1,000.00 
734. 00 
323. 33 
925. 00 
182. 00 
550. 00 
675.00 
216. 00 

3, 680. 00 

too. 00 

492.00 
394. 00 
1,000.00 
425. 00 
800. 00 
862.00 
208. 00 
700. 00 




2 








3 


Aguadilla 


do 






4 


Aguas Buenas 


do 






S 


Anasco 


do 






fi 




do 






7 




do 






8 


Bayamon 


do 






9 


Camuy 


do 






10 


Ca vey 


do 






11 




do 






12 


Comerio 


do 




$551. 63 


13 


Fajardo 


do 






14 


Lajas 


do 






15 


Las Marias 


do 






16 


Maricao 


do 






17 


Mavaguez 


do 




2, 301. 62 
365. 76 


18 


Morovis 


do 




19 


Naguabo 


do 






20 


Patillas 


do 






?,} 




do 






•m 


Sabana Grande 


do 






23 




do 






24 


Utuado 


do 






25 




do 






2fi 




Oct. 3, 1904 








Total 1904-5 








19, 496. 33 




19, 496. 33 


3,219.01 




Aguaaa 


Aug. 31, 1905 






F«7 




1, 000. 00 
900. 00 


1,000.00 
1,096.00 
1,500.00 
2,000.00 
1, 200. 00 
2,000.00 
1, 200. 00 
3,000.00 
3,000.00 
5,000.00 
6,000.00 
3, 500. 00 
1,000.00 
1,500.00 


658. 13 


28 




196. 00 
1, 500. 00 
2, 000. 00 
1, 200. 00 


721 07 


29 


Aguadilla 


Sept. 20, 1905 
Oct. 6, 1905 
do 


983. 44 


30 






1,579 37 


31 


Sabana Grande 




947. 84 


32 




...do... 


2, 000. 00 
1,200.00 
3, 0Q0. 00 
3, 000. 00 
5, 000. 00 
6,000.00 
3, 500. 00 


1,579 76 


33 




Oct. 11,1905 
Nov. 8,1905 
do 




947 24 


34 






2. 531. 46 

2. 727. 47 
5, 000. 00 
6, 000. 00 
3,500 00 


35 


Hatillo 




36 




Mar. 31,1906 
Apr. 10,1908 




37 


Coamo 




38 






39 


Maguabo 


Apr. 17,1906 
May 31,1906 


1, 000. 00 


1,000.00 
1,500.00 


40 




1, 500. 00 




Total 1903-6 








5,896.00 


27, 100. 00 


32,996.00 


29, 675. 78 




Total 1904-5 and 1905-6 






25,392.33 


27,100.00 


52, 492. 33 


32,894.79 









PORTO RICO. 



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S, Doc. 135, 59-2- 



Exhibit D. 

REPORT OF THE AUDITOR OF PORTO RICO. 

Office of the Auditor of Porto Rico, 

San Juan, P. R., July 1, 1906. 
Sir : I have the honor to present herewith a statement of the finan- 
cial transactions of the office of the auditor for the fiscal year ending 
June 30, 1906, showing: 

(1) A statement of the receipts of the insular government, both 
insular revenue and trust, from July 1, 1905, to June 30, 1906, as 
shown by treasurer's receipts, countersigned by the auditor. 

(2) A statement of expenditures of the insular government, both 
payments from insular revenue and payments from trust funds, from 
July 1, 1905, to June 30, 1906, as shown by warrants issued by the 
auditor and countersigned by the governor, pursuant to appropria- 
tions authorized by law during said period. 

(3) A comparison of the balances of insular revenues and trust 
funds for the fiscal year 1905-6 with those of the previous fiscal year. 

(4) A statement of the distribution of trust funds. 

(5) A recapitulation of receipts and expenditures of insular reve- 
nues and trust fund balances. 

Owing to the auditor's office being unable to close the year's books 
until two months after close of the fiscal year, because the accounts 
for the year have not been finally rendered until then, it is impossible 
to set forth at this early date a statement of audited disbursements. 
The expenditures, as here set forth, consist of advances to disbursing 
officers and payments on audited claims. 

A considerable decrease is shown in the balance to the credit of 
trust funds at the close of the present fiscal year as compared with 
the preceding year, that for the fiscal year 1905-6 being $213,091.23, 
and for the year 1904-5, $341,437.16. This decrease is accounted for 
by the fact that there were larger expenditures than receipts from 
several of the trust funds. The funds most noticeably affected in 
this manner are " Construction and repair of country roads," with a 
decrease of $72,010.83, and " School extension in Porto Rico," with a 
decrease of $32,094.96. The trust fund, " Balance to credit of gen- 
eral allotment appropriation by Congress of revenues collected on 
importations from Porto Rico into the United States," was reduced 
from $111,279.38 to $105,072.10, on account of transfers from this 
fund to " Construction and repair of country roads." 

Customs receipts for the fiscal year have shown a healthy increase 
and point in unmistakable terms to the large and general prosperity 
of the island. For the fiscal vear 1904-5 these receipts amounted to 
$658,347.67 and for 1905-6 to $716,111.20. Considered monthly an 
increase is shoAvn in eight of the twelve months of the fiscal year. 

98 



PORTO KICO. 99 

Internal-revenue receipts, amounting in 1904-5 to $2,458,378.31 
and in 1905-6 to $2,444,719.51, have been practically stationary, show- 
ing, as they do, a very small decrease. 

A considerable increase is shown in " Miscellaneous receipts from 
sundry sources," which was $155,577.68 in 1904-5 and $194,341.01 
in 1905-6. This was due to large increases in the collections of 
marshals and secretaries of the insular courts, which arise out of the 
establishment of the new judicial system for the island. 

The marked decrease in the expenses of the legislative branch of 
the insular government, being $108,790.21 in 1904-5 and $58,681.41 
in 1905-6, is due to the latter year being one in which the general 
elections did not occur. 

In the executive branch of the insular government a large increase 
is shown in the advance to cover expenses of the office of the secre- 
tary, while a considerable decrease appears in advances for the office 
of the auditor. These changes are accounted for by the transfer of 
the bureau of printing and supplies from the office of the auditor to 
that of the secretary. 

The increase in the expenditures on account of insular police from 
$314,443 in 1904-5 to $347,369.37 in 1905-6 is due to an increase in 
the number of police used in the latter year. 

An important factor in this increase was the cane strike in the 
Arecibo district, which occurred last spring. 

The advances for expenses of the department of health, charities, 
and correction show an increase during the year, being $284,860.65 
in 1904-5 and $310,451.01 in 1905-6. This is accounted for by the 
additional cost during the latter year of the establishment and 
maintenance of the blind asylum. 

Of the insular revenues, $2,453,556.24 have been advanced to the 
disbursing officers of the insular government on accountable war- 
rants for payments to be made through them. The auditor has paid 
direct from insular revenues on claims the sum of $1,088,237.27. 
From trust funds $177,127.05 has been advanced to disbursing offi- 
cers on accountable warrants for payments to be made by them. 
The auditor has paid direct from trust funds on claims the sum of 
$308,056.81. 

My grateful acknowledgments are due, and are hereby made, for 
the valuable and efficient service rendered by the assistant auditor, 
and for the faithful and satisfactory discharge of their official duties 
by the clerks of this office. 

Respectfully submitted. 

George Cabot Ward, 
Auditor of Porto Rico. 



FINANCIAL STATEMENT. 

Receipts and expenditures from July 1, 1905, to June SO, 1906. 

RECEIPTS. 

The balance in the hands of the treasurer of Porto Rico at the close of 
business on June 30, 1905, as shown by the general ledgers of receipts and 
expenditures, as stated in the auditor's report for the fiscal year ending June 
30, 1905, page 16, verified in the offices of the auditor and the treasurer, was as 
follows. 



100 PORTO EICO. 

Insular revenues $416, 794. 19 

Trust funds 341,437.16 

$758, 231. 35 

Deposits with the Treasurer. 

[July 1, 1905, to June 30, 1906.] 

I. INSULAR REVENUES. 

(a) Customs receipts. 

Deposits by collector of customs for Porto Rico : 

July, 1905 $27,010.00 

August, 1905 70,006.95 

September, 1905 22,000.00 

October, 1905 86,094.25 

November, 1905 50,000.00 

December, 1905 78.000.00 

January, 1906 83,000.00 

February, 1906 63,000.00 

March, 1906 60,000.00 

April, 1906 , 67,000.00 

May, 1906 55,000.00 

June, 1906 55,000.00 

Total deposits of customs receipts $716, 111. 20 

(b) Internal-revenue receipts. 

Deposits bv collectors of internal revenue : 

July, 1905 $95,912.73 

August, 1905 138,011.89 

September, 1905 147,411.15 

October, 1905 254, 385. 75 

November, 1905 204,552.91 

December, 1905 191,588.43 

January, 1906 258,337.10 

February, 1906 321,116.72 

March, 1906 240,629.45 

April, 1906 211,088.05 

May, 1906 204,779.78 

June, 1906 176, 905. 55 

Total deposits of internal-revenue receipts $2,444,719.51 

(o) Miscellaneous receipts of internal revenue. 

July 1, 1905, to June 30, 1906, deposits by various receiving and 

revenue 2, 730. 90 

(d) Miscellaneous receipts from sundry sources. 

July 1, 1905, to June 30, 1906, deposits by various receiving and 
disbursing officers, and fees collected by the secretaries and mar- 
shals of the various district and municipal courts of Porto Rico_ 194, 341. 01 



Total deposits of insular revenues 3,357,902.62 

(e) Repayments. 

July 1, 1905, to June 30, 1906, sundry deposits of repayments by 

disbursing officers 177, 200. 00 

(f) Transfers. 
To insular revenues from trust funds 10,099.41 

Total deposits to credit of insular revenues, including re- 
payments and transfers 3,545,202.03 



POETO KICO. 101 

II. TRUST FUNDS, 
(a) Establishment and maintenance of industrial schools. 

Amount received from sales of manufactured goods 
at the industrial schools from July 1, 1905, to June 
30, 1906 $271.21 

(6) Taxes paid under protest. 

Taxes paid by various taxpayers under protest 11, 980. 53 

(c) Municipal school tax on property. 

July 1, 1905, to June, 30, 1906, amounts collected by 
the treasurer of Porto Rico, through the collectors 
of internal revenue 70,619.94 

(d) Municipal bond redemption tax. 

July 1, 1905, to June 30, 3906, amounts collected by 
the treasurer, through the collectors of internal 
revenue, for the purpose of paying the interest on 
the bonds and creating a sinking fund for their 
redemption, as follows : 

San Juan $77,161.25 

Ponce 15,162.73 

Mayaguez 35, 252. 76 

Arecibo 29,039.08 

156. 615. 82 

(e) Redemption — Certificates of indebtedness. 

July 1, 1905, to June 30, 1906, amounts deducted by 
the treasurer of Porto Rico from taxes due munici- 
palities and deposited to their credit for the pay- 
ment of certificates of indebtedness issued, said 
amounts to be paid to the assignees of such cer- 
tificates 30,333.29 

(f) Outstanding liabilities. 

July 1, 1905, to June 30, 1906, deposits made by the de- 
positaries for insular revenues on account of treas- 
urer's drafts and disbursing officers' checks, re- 
maining outstanding and unpaid beyond the time 
required by law 345.92 

(ff) Sundry trust-fund deposits. 

July 1, 1905, to June 30, 1906, on account of various 
deposits in trust by individuals as bail bonds, fran- 
chise bonds, etc 27,876.96 

(h) Loans to municipalities. 

July 1, 1905, to June 30, 1906. on acount of deductions 
made by the treasurer of Porto Rico as reimburse- 
ment on account of loans made to various municipali- 
ties 5, 546. 93 

(i) Loans to school boards. 

July 1, 1905, to June 30, 1906, on account of deductions 
made by the treasurer of Porto Rico as reimburse- 
ment for loans made to various school boards 1, 096. 37 

(i) School extension. 

July 1, 1905, to June 30, 1906, on account of deductions 
made by the treasurer of Porto Rico, as reimburse- 
ment for money advanced certain municipalities to 
assist in the construction of schoolhouses 18,264.12 



102 PORTO RICO. 

(fc) Aguas Buenas cementery. 

Amount repaid by the treasurer of the municipality of 
Aguas Buenas on account of money donated to said 
municipality by the insular government from " Pro- 
ceeds of sales of relief supplies, hurricane of August, 
1899 " $0. 22 

{I) Repayments. 

July 1, 1905, to June 30, 1906, repayments 
by disbursing officers of balances of 
moneys advanced from trust funds $15, 976. 65 

July 1. 1905, to June 30, 1906, repayments 
by the secretary and treasurer of the Uni- 
versity of Porto Rico of balances of money 
advanced from trust funds and money ob- 
tained by sales from the university farm_ 18, 697. 18 

$34, 673. S3 

(to) Transfers. 

To trust funds from insular revenues 14, 9S7. 53 



Total deposits to, credit of trust funds (including repay- 
ments and transfers) $372,612.67 



Total deposits from July 1, 1905, to June 30, 1906 3,917,814. 70 

Balance on hand at close of business June 30, 1905 758, 231. 35 



Total receipts to be accounted for on June 30, 1906 4, 676, 046. 05 

EXPENDITURES. 

I. PAYMENTS MADE FROM INSULAR REVENUES. 

(1) Amounts advanced to disbursing officers of the insular government, from 
insular revenues, on accountable warrants, for expenditures from the following 
appropriations, July 1, 1905, to June 30, 1906 : 

Legislative. 

Executive council: Salaries and expenses—' $28,279.27 

House of delegates : Per diems and salaries of mem- 
bers, salaries of employees, and contingent expenses. 25, 202. 14 
Expenses of election in Porto Rico 5,200.00 



Total advanced for legislative expenditure $58,681.41 

Executive. 

Office of the governor: Salaries and expenses $12,790.00 

Office of the secretary : Salaries and ex- 
penses $28,858.33 

Office of the bureau of printing and sup- 
plies, salaries and expenses 39, 183. 64 

68, 041. 97 



Office of the attorney-general : Salaries and expenses. 25, 036. 41 

Office of the treasurer, salaries and ex- 
penses : 

Treasurer's office proper ?_ $30,430.99 

Bureau of accounts 18,686.11 

Bureau of internal revenue 70,826.38 

Bureau of municipal finance 9,033.33 



128, 976. 81 



Internal-revenue service : Salaries and expenses of 
eight collectors of internal revenue and the various 
deputy collectors 58,235.08 

Office of the auditor : Salaries and expenses 29,292.32 



PORTO EICO. . 103 

Department of the interior : 

Office of the commissioner, including 

bureau of docks and harbors $52, 568. 81 

Bureau of insular telegraph : Salaries 
and expenses, including repairs to 

lines 59,434.59 

Maintenance and repair of roads 182, 655. 81 

Maintenance and repair of public 

buildings 37,396.01 

Expenses of executive mansion 9, 759. 22 

Repairs to military barracks, Ponce__ 4, 497. 01 
Purchase of building, district court of 

Arecibo, and repairs to same 6,902.50 

Construction of jail in Arecibo 21,600.00 

Construction (convict labor) — 

Humacao-Yabucoa road 4, 090. 48 

Jayuya road 6, 449. 05 

Registration and inspection of com- 
mercial fertilizer 550. 00 

Grant of land to school board, San 

Juan 50.00 

Construction of reform school build- 
ing 900.00 

Installing district court and insular 

police, infantry barracks, Mayaguez 1, 800. 00 
To complete the construction of vari- 
ous insular roads '. 16, 000. 00 

Erection of second story on the peni- 
tentiary _ 12.000.00 

Construction of a canal at Boca Vieja 50. 00 

Minor repairs to dock at San Juan 100. 00 

$416, 803. 48 

Department of education : 

Salaries and expenses, office of the commissioner ; 
salaries, teachers of public school ; purchase 
of text-books and school supplies ; expenses in- 
cident to maintenance of public schools, and 
education of Porto Rican students in the 

United States 604,174.73 

Funds for the University of Porto Rico 23, 200. 00 

Insular police of Porto Rico : Salaries and incidental 
expenses of force, equipment, stabling of horses, 

rent of quarters, and contingent expenses 347, 369. 37 

Department of health, charities, and correction : Sala- 
ries and expenses, office of the director, and the 

bureaus of health, charities, and insular prisons 310, 451. 01 

Registrars of property : Salaries and expenses 39,700. 38 

Insular library: Salaries and expenses 2,345.00 

Maintenance of a- commercial agency in the United 

States "_ 7,333.00 

Suppression of anaemia : Salaries and expenses 12, 795. 00 

Expenses of commission to organize system of local 

government 1,625.80 

Collection and preservation of historical data, salaries, 1, 200. 00 

expenses 1,908.00 

Collection and preservation of historical data, salaries 1, 200. 00 
Expenses of commission on prison control and teach- 
ers' pension fund , 650.00 



Total advanced for executive expenditures .$2,091,928.36 

Judicial. 

United States district court for Porto Rico : Salaries 
and expenses of officers and employees, fees of jurors 
and witnesses, and expenses $35,457.33 



104 PORTO EICO. 

Insular courts of Porto Rico : 

Salaries and expenses, supreme court and district 
courts and municipal courts ; witness fees and 
incidental expenses of jury procedure $267,013.14 

Publication of decisions of United States district 

court and supreme court of Porto Rico 476. 00 

Total advanced for judicial expenditures. _ $302,946.47 

Total amount advanced from insular revenues 2, 453, 556. 24 

(2) Payments of claims by the auditor from insular revenues — 
for fees paid to United States commissioners, water furnished 
insular buildings by the municipality of San Juan, printing and 
stationery for the printing and supply division, refunds of taxes 
improperly collected, payments of 85 per cent of property taxes 
collected, payments of claims to private individuals, and loans 

to municipalities and school boards 1,088,237.27 

(3) Transfers — from insular revenues to trust funds. 14,987.53 

Total amount paid from insular revenues, July 1, 1905, to 

June 30, 1906 ___2 3,556,781.04 

II. PAYMENTS FROM TRUST FUNDS. 

(1) Amounts advanced to disbursing officers of the insular government, from 
trust funds, on accountable warrants, for expenditures under the following 
heads, July 1, 1905. to June 30, 1906 : 

Department of the interior — 

Construction and repair of country roads in Porto 

Rico $92,077.67 

Voluntary payments on account of certain roads 

and bridges 749.07 

Department of education : 

School extension (construction of schoolhouses) 64,433.36 

The University of Porto Rico 17, 588. 74 

Department of health, charities, and correction : Fees 
for candidates' examinations to practice medicine 

and pharmacy 325.00 

Treasury agents : Payments from deposits made by 

distillers for salaries of agents 1, 846. 67 

Cemetery at Aguas Buenas : Money advanced to mu- 
nicipality to repair cemetery 106. 54 

Total amount advanced from trust funds 177, 127. 05 

(2) Payments of claims by the auditor from trust 

funds. July 1. 1905, to June 30, 1906. 
Taxes collected by the treasurer of Porto 
Rico and repaid monthly to the treasur- 
ers of the municipalities : 

Municipal school taxes on property $70, 544. 48 

Municipal bond redemption taxes 156, 890. 58 

Outstanding liabilities ! 9. 62 

Payments of certificates of indebted- 
ness issued by municipalities from 
taxes collected and retained by the 
treasurer of Porto Rico for that 

purpose 22,546.94 

Collections from various school boards 
and municipalities, held in trust 
for them on account of loans, now 
paid into the insular treasury to 

the credit of their accounts : 37, 089. 42 

Payments of claims to individuals 20, 975. 77 

Total amount paid from trust funds on set- 
tlements 308,056.81 

Total amount paid from trust funds 485, 183. 86 



PORTO RICO. 105 

Transfers: From trust funds to insular revenues $15,774.74 

Total amount paid from trust funds, including transfers $500, 958. 60 

Total expenditures July 1, 1905, to June 30, 1906 4, 057, 739. 64 

Total receipts to be accounted for June 30, 1906, page 4 4, 676, 046. 05 

Total expenditures July 1, 1905, to June 30, 1906, as above 4, 057, 739. 64 

Balance in the hands of the treasurer at close of business 

June 30, 1906 618,306.41 

Which agrees with the balance as shown by the general ledgers of 
the auditor and the treasurer, as follows : 

To credit of insular revenues $405, 215. 18 

To credit of trust funds 213, 091. 23 

Total 618, 306. 41 

Comparison of the balances of insular revenues and trust funds for the fiscal year 1905-6 
and the previous year of 190h-5. 

Balance of insular revenues on hand June 30, 1905 $416, 794. 19 

Balance of insular revenues on hand June 30, 1906 405, 215. 18 

Decrease in balance of insular revenues during the fiscal 

year 1905-6 11, 579. 01 

Balance of trust funds on hand June 30, 1905 341, 437. 16 

Balance of trust funds on hand June 30, 1906 213^ 091. 23 

Decrease in balance of trust funds during the fiscal vear 

1905-6 ____ 12 8, 345. 93 

Distribution of trust funds. 

I. Balance to credit of general allotment — appropriation by 
Congress of revenues collected on importations from Porto 

Rico to United States $105,072.10 

II. School extension in Porto Rico 50,' 815." 52 

III. Construction and repair of country roads in Porto Rico 5^884! 16 

IV. Balance of sundry trust fund receipts, deposited with the 

treasurer of Porto Rico as trust-fund appropriations—: 30, 310. 45 

V. Individual deposits — deposits by individuals for demarcation 

of mines, supply contract bonds, etc 21,009.00 

Total, as above stated 213, 091. 23 

Recapitulation. 

[Receipts and expenditures from July 1, 1905, to June 30, 1906.] 

RECEIPTS. 

Insular revenues. 

Customs receipts $716,111.20 

Internal revenue receipts 2, 444^ 719. 51 

Miscellaneous receipts from sundry sources 197,071.91 

Total insular revenues deposited 3, 357, 902. 62 

Repayments ^ 177,200.00 

Transfers to insular revenues from trust funds 10. 099. 41 

Total deposits and repayments of insular revenues $3,545,202.03 

Trust funds. 

Trust funds deposited $341,648.49 

Repayments to trust funds 15 ; ' 976. 65 

Total trust fund deposits and repayments___ 357, 625. 34 



106 POETO EICO. 

Transfers from insular revenues $14,987.53 

Total trust fund deposits, repayments and transfers $372, 012. 67 

Total deposits, transfers and repayments, from July 1, 

1905. to June 30, 1906 3,917,814.70 

Balance on hand at close of business June 30, 1905 75S, 231. 35 

Total receipts to be accounted for 4,676,046.05 

EXPENDITURES. 

Amounts advanced to disbursing officers from insular revenues. 

Total amount advanced for legislative expenditures $58,681.41 

Total amount advanced for executive expenditures 2,091,928.36 

Total amount advanced for judicial expenditures 302,946.47 

Total amount advanced from insular revenues 2,453,556.24 

Payment of sundry claims on settlements 1,088,237.27 

Transfers from insular revenues to trust funds 14, 987. 53 

Total amount paid from insular revenues 3,556,781.04 

Amounts advanced to disbursing officers from trust funds. 

Treasury department $1, 846. 67 

Department of the interior 92,826.74 

Advanced to University of Porto Rico 17, 588. 74 

Department of education 64,433.36 

Department of health, charities, and correction 325. 00 

Advance to municipality of Aguas Buenas 106.54 

Total amount advanced from trust funds 177, 127. 05 

Payment of sundry claims on settlements 308,056.81 

Transfers to insular revenues 15,774.74 

Total amount paid from trust funds $500, 958. 60 

Total expenditures, July 1, 1905, to June 30, 1906 4,057,739.64 

Total receipts to be accounted for 4,676,046.05 

Total expenditures 4, 057, 739. 64 

Balance on hand June 30, 1906 618,306.41 

Made up as follows : 

Insular revenues___ $405,215.18 

Trust funds 213, 091. 23 

618, 306. 41 

Decrease in balance of insular revenues : 

Balance of insular revenues June 30, 1905 416,794.19 

Balance of insular revenues June 30, 1906 405,215.18 

Decrease in balance of insular revenues during the fiscal 
year 1905-6 11,579.01 

Decrease in balance of trust funds : 

Balance of trust funds June 30, 1905 341, 437. 16 

Balance of trust funds June 30, 1906 213,091.23 

Decrease in balance of trust funds during the fiscal year 
1905-6 128, 345. 93 



Exhibit E. 

REPORT OF THE COMMISSIONER OF THE INTERIOR. 

Office of the Commissioner of the Interior, 

San Juan. P. R., July 5, 1906. 
Sir: In compliance with your letter of June 21, I have the honor 
to submit the following brief statement of the work of this depart- 
ment during the fiscal year ending June 30, 1906. 

MAINTENANCE OF ROADS. 

The maintenance of insular roads has been carried on by the field 
and office force as organized by Mr. J. S. Elliott, former commis- 
sioner of the interior. This organization was very fully explained in 
his report to you for the year 1904-5. 

The results obtained by the system employed during the fiscal 
year 1905-6 have been so satisfactory that no change will be made 
for the j^ear 1906-7, except the extension of this system to an addi- 
tional 125.5 kilometers of road, which will make for maintenance 
during the year 1906-7 a total of 805.5 kilometers instead of 680 
for the year 1905-6. 

For the compensation of labor, purchase of material, rent of tool 
sheds and caminero houses, repair to bridges, road houses, bulk- 
heads, and embankments, and other necessary expenses other than in 
the department of the interior in San Juan, in connection with the 
maintenance and repair of insular roads, there was appropriated the 
sum of $200,000. This mone}^ was expended as follows : 

1. For the maintenance of 6S0 kilometers of road $137. 201. 12 

2. For' the Carolina bridges _ 30.119.17 

3. For the Caguas bridge 0,259.01 

4. For changing width of bridges on the Lares road 805.54 

5. Changing width of bridge on the Arroyo road 621. 58 

6. Culverts on road No. 7 , 870. 10 

7. Building road from kilometers 9 to 16 of the Ponce-Guayama 

road _ 1 5, 000. 00 

8. Cement, pump, etc., to be used in various bridges 7. 123.48 

Total 200, 000. 00 

The table of _ expenditures for maintenance of roads, presented as 
Table No. 1, will show the material bought and money expended on 
each section of road under maintenance. 

107 



108 



PORTO EICO. 



T\ble No. 1. — Expenditures for maintenance of insular roads, year ending June SO, 

1906. 



Road divisions. 



San Juan to kilometer 36. 
Kilometer 36 to kilometer 

80 

Kilometer 80 to Ponce 

Playa 

Catano to Vega Alta 

Aguadilla to Camuy 

Mayaguez to Anasco 

Mayaguez to Yauco 

Ponce Guayama 

Cayey Arroyo 

Arroyo Puente Blanco. . . 
Caguas Humacao Playa. . 

Ponce Arecibo 

Rio Piedras Fajardo a . . . 

Trujillo Alto branch & 

Fajardo to Naguabo 



Yabucoa to Maunabo c . . 

Humacao to Yabucoa 

Aguadilla to Lares 

Bayamon Comerio 

Reyes Catolicos Corozal. . 
Manati Ciales and Moro- 

vis branch 

Mayaguez Las Marias . . . 



Total 680 



Kilos 
36 

44 

54 
27 
42 

9 
45 
41 
34 

4 
39 
82 
50 

4 

20 
9 

15 
38 
19 
16 

25 

27 



Broken stone and gravel for macadam. 



On 
hand 
from 

last 
year. 



Cubic 

meters 

5,742 

606 

2,325 

432 

702 

188 

1,745 

1,801 

\ 878 

60 

1,629 

100 



136 



182 
450 



403 
650 



18, 677 



Stone delivered July 1, 
1905, to June 30, 1906. 



Stone placed. 



Cubic 
meters 



4,136 
1,662 

3,085 
688 

1,758 

1,340 
578 

2,558 

1,641 

1,067 
1,999 
3,423 



1,389 



Cost. 



Aver- 
age 
cost per 
cubic 
meter 



S10, 482.18 
2,641.37 

5,162.08 
816.15 

2,007.35 

2,377.64 
646.13 

1,059.25 

2,204.67 

1,310.82 

2,199.17 

3,872.62 

414.00 

441.62 



1,757 

5,467 

52 

358 

787 
330 



34, 765 



233.41 

8,428.91 

50.00 

302.15 

204.89 
111.06 



44, 965. 47 



$2.53 

1.59 

1.67 
1.19 
1.14 
1.77 
1.12 
.41 

1.34 

1.23 

1.10 

1.13 

.60 

.32 



.13 

1.54 

.96 

.84 

.26 
.34 



Cubic 
meters. 



9,122 

1,330 

4,361 
1,097 
2,045 
1,184 
1,336 
4,359 

2,085 
1,062 
2,477 
2,213 
690 



Cost. 



17,522.59 

2,341.79 

3,980.59 
1,159.42 
2,752.63 

948.41 
1,401.12 

737.11 

2,006.99 

826.48 
3,945.93 
2,106.76 

343.52 



44, 393 



1,384 


943.41 


11 


65.20 


1,757 


233.40 


4,655 


4,940.70 


375 


226.70 


991 


539.43 


886 


904.96 


973 


1,139.12 



39,066.26 



Aver- 



.13 

1.06 



1.02 
1.17 



Bal- 
ance 
June 
30, 1906. 



938 



434 



.049 



Road divisions. 



Inspec- 
tion. 



San Juan to kilometer 36 

Kilometer 36 to kilometer 

80 

Kilometer 80 to Ponce 
Playa 

Catano to Vega Alta 

Aguadilla to Camuy 

Mayaguez to Anasco 

Mayaguez to Yauco 

Ponce Guayama 

Cayey Arroyo 

Arroyo Puente Blanco . . 
Caguas Humacao Playa. 

Ponce Arecibo 

Rio Piedras Fajardo «... 
Trujillo Alto branch b ... 
FajardotoNaguabo Playa 
YabucoatoMaunabo .... 

HumacaotoYabucoa 

AguadillatoLares 

Bayamon Comerio 

Reyes Catolicos Corozal. 
Manati Ciales and Morovis 

branch 

Mayaguez Las Marias . . 



$2,029.25 



1,877.00 

2 

1 



154.00 
979.00 
521.00 
344.00 
498.00 
642.00 



1,345.00 



726.73 
675.33 
262.00 



,054.14 
238.00 
126.00 

,013.00 
657.00 
657.00 

738.67 
896.00 



Tools, 

repairs 

and 

purchase. 



1,474.52 
335.34 

366.20 
62.56 

492.74 
89.61 

136.58 
34.33 

232.57 

119.40 
88.20 
47.05 
6.30 
34.75 
19.00 



208.59 
79.50 



Total 26,433.12 



35.71 
18.07 



Landslides, 
cleaning, etc. 



Cost. 



$932.01 

1,440.95 

357.50 
419.96 
513.70 

57.98 
1,074.15 

76.25 



Aver- 
age 
cost per 
kilo- 
meter. 



32.75 

6.62 
15.55 
12.23 

6.44 
23.87 

1.86 



1,342.60 35.33 



671.89 
2,178.72 
514.39 
188.50 
292.69 
327.38 
170.19 
2,167.83 
653.07 
300.88 

270.23 
694. 43 



17.23 
26.57 
10.29 
47.13 
14.63 
36.38 
11.35 
57.05 
34.37 
18.80 

10.81 

25.72 



3,881.02 14,645.30 ! 21.53 



Miscel- 
laneous 
house 
rent, 
repairs 
to road 
house- 



Repairs 

bridge 

and 

culverts. 



,091.42 

531.04 

78.91 
67.10 
132.88 
147.75 
96.99 
17.61 

398.71 

127.15 

233.31 

813.27 

478.26 

21.02 

18.83 

11.50 

232.34 

5.00 

3.50 

79.66 
18.56 



4,604.81 



$166.05 

77.99 

462.64 
81.14 
274. 55 
510.59 
438.78 
142.52 

14.79 

292.27 

172. 37 

182.48 

56.00 

68.63 

5.00 



301.15 



274.23 



72.00 
11.96 



3,605.14 



Totals. 



Aver- 
age 
cost of 
main- 
te- 
nance 
per 
kilo- 
meter. 



$23,698.02 

9,245.48 

12,561.92 
3,585.33 
7,694.85 
4,475.98 
5,291.75 
3,709.07 

7,545.33 

5,074.74 

11,493.03 

9,798.57 

1,486.58 

2,856.26 

774. 50 

673. 41 

18,292.52 

1,671.27 

2,077.19 

2,306.12 
2,889.20 



137,201.12 



$658.28 

210.12 

232.63 
132.7 
183.21 
497.33 
117.59 
90.46 

198.56 

130.12 

140.16 

195.97 

371.64 

142.81 

86.06 

44.89 

481.38 

87.96 

129.82 

92.24 
107.01 



201.77 



a $655.15 for ferryboat at Carolina River. 

b Some construction. 

c Repairs made with tosca not included in broken stone. 
Average of stone used per kilometer, 65.3 cubic meters. 
Average of stone bought per kilometer, 51.1 cubic meter. 



POETO EICO. 109 

The average cost per kilometer has been reduced this year to 
$201.77. Upon estimates made early in the fiscal year it was thought 
that this work could be done for about $190 per kilometer, but owing 
to the phenomenal increase in sugar cane and tobacco planting, which 
also increased the price of labor, it was impossible to get to this figure. 
Almost a general increase of 5 cents per day was made in the wages 
of the laborers, but even this, at times, was not enough inducement to 
bring the laborers to our work, which was therefore carried on with 
a very limited force. The cost of transportation has also increased, 
and in many sections of the island this increase has amounted to more 
than 50 per cent. For instance, carts from San Juan to Caguas 
to-day are scarce at $14 per trip, while last year this same trip was 
made for $8. 

The sections of road from San Juan to kilometer 38, Aguadilla to 
Lares, and Mayaguez to Ahasco have received special attention this 
year. Resurfacing on these roads was badly needed. A glance at 
Table No. 1 will show the amount of broken stone used. 

For the 680 kilometers of road under maintenance an average per 
kilometer of 65.3 cubic meters of stone was used during the year, 
and it is safe to say that under the careful supervision given to this 
work every meter has been used to good advantage. Instead of put- 
ting on entirely a new course of stone 4 inches in depth where the 
roads had become rutted or slightly worn, we have picked the old 
surface, and by the addition of a small quantity of stone these roads 
have been put in first-class condition, thus reducing the amount of 
stone used per kilometer and increasing the number of kilometers 
left in good repair. 

The work shown in the table under the heading " Landslides, clean- 
ing, etc.," has consisted principally of work known as " rebaje de 
paseos," or the cuting down of shoulders. 

The old system of building roads in Porto Rico was to build a road 
with very little crown and with shoulders practically level. Pre- 
viously the roads were maintained by the system of " peones camine- 
ros," who were continuously cutting the grass on these " paseos," or 
shoulders. Having done away with this system, we find that the 
grass on these shoulders grow up and in rainy weather catches all 
the dirt and refuse from the road, which has naturally been washed 
toward the sides by the heavy rains. We have spent considerable 
money this year in different sections of the island, giving to the 
" paseos " a slope which, even with the grass growing upon them, will 
in no way retard the flowing of water and refuse into the side 
ditches. It is true that this work is not necessary on all insular 
roads, and that during the past year it was only done on those sec- 
tions where so much refuse had accumulated on the " paseos " that it 
was impossible for the water to flow immediately into the ditches. 
During the coming fiscal j^ear we will complete the " rebaje de 
paseos," so that in future years very little of this work will have to 
be done. 

The following comparative table will show the expenditures for 
maintenance for the last four years. 



110 



PORTO nico. 
Table No. 2. 



Year. 


Kilometers 
under 
mainte- 
nance. 


Total cost 
of main- 
tenance. 


Cost per 
kilometer. 


Broken 
stone used 
per kilo- 
meter. 


1903 


445.1 
518.2 
662.0 
680.0 


$176, 783. 07 
193,737.37 
193,021.17 
137,201.12 


$397. 18 
373. 87 
291. 57 
201. 77 


Cvbic 
meters. 
62.5 


1904 


58.3 


1905 


66.5 


190b 


65.3 







CAROLINA BRIDGE. 



Contracts for erecting a 34-meter steel bridge, a 14.4-meter steel 
bridge, the abutments and erection of a 19.5-meter steel span, and 
for the west abutment, and steel for a 96-meter bridge were awarded 
during the year. 

The $39,119.17 to pay for the above work was set aside from the 
$200,000 appropriation/ To complete the work $18,000 will be needed. 

With the exception of the 96-meter steel span and the west abut- 
ment, all of the work has been accepted by this department. 

As the east abutment of the 96-meter span and the abutments for 
the 14.4 and the 34 meter spans were built by the Spanish Govern- 
ment and were in very satisfactory condition, it was thought advis- 
able to complete the work started by the Spanish engineers rather 
than to change the location of the bridge to a site which, in the opin- 
ion of the engineers of this department, would be more satisfactory, 
but which would not warrant the abandonment of the abutments 
already constructed. In addition to the abutments, the steel for 
34 and 14.4 meter spans was at the bridge site. 

I think that it would be well at this time to give a brief history of 
the Carolina bridge. 

Across the Rio Grande de Loiza, Carolina, the Spanish Govern- 
ment had built a two-span wooden bridge of 67 meters, at an esti- 
mated cost of 50,000 pesos. During a great storm, which occurred 
the 29th of June, 1860, the central pier of this bridge was destroyed, 
carrying away, when it collapsed, the two wooden spans. 

On August 17, 1891, another heavy flood undermined and destroyed 
the west abutment. 

In the year 1896 the Spanish Government made a plan for the 
reconstruction of the works, to consist of one steel span of 81.4 meters, 
two of 7.20 meters, and one of 34 meters, with an aggregate length 
of 129.8 meters, at an estimated cost of 104,453 pesos. 

At the time of the American occupation, in the year 1899, the 
above works were under way, but the flood of August 8 of said year, 
during the cyclone of San Ciriaco, proved in the most conclusive 
manner that the works as projected were inadequate. The bureau 
of public works then decided to use the steel span of 81.4 meters for 
a bridge over the " Mata de Platanos " crossing of the Manati River, 
where it was placed some time later. 

I beg to call your attention to two important changes made by the 
department in the project as approved by the Spanish officials. As 
shown by the history of the bridge the 81-meter span planned for 
the river crossing did not, as record has shown, give sufficient open- 



PORTO RICO. HI 

ing for flood waters, so we are now building over the river a bridge 
of 96 meters, and in addition have erected a 19.50-meter span, the 
steel of which was sent from our storehouse at Ponce. 

CAGUAS BRIDGE. 

" El puente de las Damas," built over the Caguitas River in the 
year 1870 with the funds raised by the ladies of Caguas, was carried 
away during the flood which occurred at the time of the cyclone of 
1899, Since that year this department has maintained at a very 
great expense a wooden bridge at this place. 

A contract for steel for a 30.5-meter bridge for this place was 
signed on February 8, 1906. A contract was also let for the abut- 
ments, which were to be completed February 20, 1906. The con- 
tractor not haying sufficient plant or personnel sufficiently qualified 
to carry on this work in the proper manner it was not completed at 
the expiration of the time set forth in the contract. Thinking that 
by allowing the contractor more time, but charging him the cost of 
inspection, that more activity would be displayed and the work com- 
pleted, extensions of time were given him. In spite of these exten- 
sions the work dragged along, the contractor making no apparent 
eiiort to hasten the work. In June, 1906, owing to the refusal of the 
contractor to comply with certain clauses in the specifications, it was 
decided by this department to annul his contract. It is the intention 
now to finish this bridge by administration. 

The iron bridges on the Aguadilla-Lares road, and one on the 
Arroyo-Patillas road, have only 2.95 meters for width of roadway, 
and as this width is barely sufficient to allow the passage of an ox 
cart it was decided to widen them. The bridges now have a width 
of 3.^5 meters. 

CULVERTS ON ROAD NO. 7. 

The wooden culverts on road No. 7 being in such a condition that 
constant attention and repairs were necessary, a contract was let to 
replace them with concrete pipes. During the fiscal year 12 of these 
pipes were built at a cost, including excavation, etc., of $870.10. 

CONSTRUCTION, PONCE-GUAYAMA. 

t T ^ Qe - yearS a #°' while re P airin g the road between Ponce and Santa 
Isabel, it was found that the section between kilometers 9 and 16 
although not macadamized, was in such a condition that owing to the 
small amount of money appropriated for the work, it was decided 
not to repair this section. Last year, during the rainy season, it 
became so bad that immediate repairs were necessary, so $5,000 was 
taken for this purpose from the $200,000 appropriation for the main- 
tenance of roads. 

TRUST FUND. 

The table entitled "Construction and repair of roads and bridges 
under trust fund will show very clearlv the status of all the allot- 
ments made from this fund. 



112 PORTO RICO. 

During the year the Arroyo-Patillas and Humacao-Yabucoa roads 
were completed; that is to say, all grading, culverts, and macadam. 
There are several bridges to be built on these roads, but until the 
general plan of roads approved by the last legislature is near comple- 
tion I would not recommend any great expenditure of money for 
this purpose, for excepting a few hours after heavy rains these streams 
can always be forded with safet)^. 

It was made possible to complete the Patillas road with a small 
amount available by the great help given by the property owners in 
that vicinity in the way of furnishing carts free. When they were 
needed we had at our disposal 20 carts a day. In spite of promises, 
this spirit was not shown by the people of Humacao during the con- 
struction of the road from that town to Yabucoa. We did, however, 
receive a little help from a few people at the Yabucoa end. 

The legislature in the year 1903 made an appropriation for the 
building with convict labor of the Humacao-Yabucoa and the Jayuj 7 a- 
Alto de la Bandera roads. After building expensive quarters and 
on the Humacao-Yabucoa section breaking a small amount of stone 
it was found that the work was too expensive, so the prisoners were 
returned to San Juan. 

The trust-fund allotments for the construction of the two roads 
were increased by adding to them the balance of the convict-labor 
appropriation. 

The above statement is given to explain " Convict labor " in the 
remark column, Table No. 3. 

On the Barros-Barranquitas and on the Jayuya-Alto de la Bandera 
roads work is still in progress. The table will show the work com- 
pleted, money expended, and the work to be done. 

The change of grade on the Ad juntas-Lares road near the town of 
Lares is not yet completed. The allotment for this work amounts to 
$3,000. 

On the Cataho-Rio Piedras and the Rio Piedras-Trujillo Alto 
roads allotments were made to pay for the prison guards and other 
neccessary expenses incident to the employment of convict labor on 
these roads. Table No. 3 will show the results of this work up to 
June 30, 1906. 



POKTO KICO. 



113 




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POETO EICO. 



115 



NEW CONSTRUCTION. 

An appropriation of $50,000 for road construction was made by 
the legislature in March, 1906, this money to be expended to com- 
plete the construction of any or all of the following roads : Comerio- 
Bayamon, Rio Grande-Fa jardo, Fajardo-Naguabo, Ponce-Guayama, 
San Lorenzo-Las Piedras, and San German-Lajas. 

Work was begun immediately on the above roads, and Table Xo. 4 
will show the money expended and work completed up to June 30. 
1906. 

Table No. 4. 

[$50,000 appropriation.] 



Roads. 



Amount 
Appropria- disbursed 
tions. to June 30. 
1906. 



Balance 

June 30. 

1906. 



\\ ork done. 



Bayamon-Comerio | $20, 000 

Ponce-Guayama j 10,000 

Rio Grande-N aguabo 12, 000 

San Lorenzo-Las Piedras j 6, 000 

San German-Lajas 2,000 

Total ! 50,000 



$4,378.79 £15,621.21 



3,312.31 
1,527.37 
1,795.23 



6,687.69 
10,472.63 

4,204.77 

2,000.00 



Rock and earth grading, 2 kilome- 
ters. 

Earth grading. SJ kilometers. 

Grading 500 linear meters of road. 

Grading 1,500 linear meters; maca- 
dam placed 600 linear meters. 



11,013.70 38,986.30 



Xot finding any record of explanation or report to you in refer- 
ence to the policy pursued by this department in road construction 
for the past two years, and as we are shortly to begin construction 
work under the million-dollar loan. I think that an outline of this 
policy in the present report would be opportune. 

In view of the great and immediate need of roads for the transpor- 
tation of the constantly increasing crops in the island, and the limited 
resources available for road construction, it was decided to build just 
as many kilometers of road as possible, trying in every way to reduce 
first cost by excluding the construction of bridges which were not 
absolutely necessary. Dry masonry, costing less than $2 per cubic 
meter, is being used instead of cement masonry, which costs over $8 
per cubic meter. Small wooden culverts are being erected. In some 
places the beds of small streams which cross the roads at grade are 
being paved. The stone being used for the macadam is the best 
obtainable. All this work is of a permanent nature excepting wooden 
culverts, which, of course, will have to be repaired or rebuilt. It is 
the intention of this department, when such repairs become necessary. 
to rebuild these culverts and pipes of masonry and concrete, doing a 
little work each year with money from the appropriations for the 
maintenance of roads. This will also be done to the streams now 
being paved. Of course, in .some places masonry and concrete cul- 
verts are being, built, as nothing else would stand the rush of water 
from some of our mountain streams. 

The benefit of this policy is very clearly demonstrated by the re- 
sults accomplished on the Jayuya-Alto de la Bandera road. The 
estimate for building this road with masonry culverts, etc.. amounted 
to $165,075. We will complete this work — 21 kilometers of road — 
for less than $50,000, and the depth and width of the macadam now 
being placed is the same as that of the original estimate. 



116 PORTO RICO. 

PUBLIC BUILDINGS. 

For the maintenance, repair, and construction of public buildings 
there was allotted or appropriated for use during the fiscal year 
1 905-6 the following : 

1. Expenses, executive mansion (this appropriation was increased 

$0.14 by a disallowance made by the auditor in the month of 
December, 1905) $12,000.00 

This amount has been practically expended in general repairs for 
the conservation of the building, care of grounds, wages of employees 
in connection therewith, telephone service, purchase, renewal, and 
repair of furniture and miscellaneous and necessary incidental 
expenses. 

2. Maintenance and repair of public buildings (this includes $15,000 

appropriated by the legislature and $1,303.26 transferred by the 

governor) $16. 303. 26 

3. Water rental 10,000.00 

4. Electric lights 5,000.00 

5. Chapel Boy's Charity School, transferred from miscellaneous ex- 

penditures subject to the approval of the governor 1,500.00 

6. Reform school, Mayaguez, not to exceed-- 20,000.00 

7. District court, Arecibo (balance July 1, 1905, of no fiscal year ap- 

propriation) 1, 902. 50 

8. Military barracks, Ponce, for district court and jail (balance 

July 1, 1905, of no fiscal year appropriation) 2,718.94 

9. Infantry barracks, Mayaguez, installation of district court and 

insular police 1, 800. 00 

10. Infantry barracks, Mayaguez, installation of jail (allotted from 

appropriation for extension of jail systems in Porto Rico) 2, 500. 00 

11. Arecibo jail (balance July 1, 1905, of no fiscal year appropria- 

tion) 34, 406. 88 

12. Erection of second story on the Presidio (allotted from appro- 

priation for extension of jail system in Porto Rico) 20, 000. 00 

In the maintenance and repair of public buildings, the $13,403.26 — 
left after deducting $2,900, the amount transferred for water and 
light — was expended for repairs in the following buildings : 

1. Intendencia, San Juan. 

2. Diputacion building, San Juan. 

3. Audiencia, San Juan (property of Federal Government, but second floor 
used by the supreme court and maintained by the insular government). 

4. Pabellon, San Juan. 

5. Fortaleza No. 5, San Juan. 

6. Fortaleza No. 2, San Juan (section 1, residence of the commissioner of 
education ; section 2, residence of the auditor ; section 3, residence of the com- 
missioner of the interior). 

7. Manicomio, San Juan. 

8. Presidio, San Juan. 

9. San Francisco Barracks, San Juan. 

10. San Francisco No. 60, San Juan. 

11. Public Works Storehouse, Marina San Juan. 

12. Public Works Storehouse. " Hornos Militares ' terraplen, San Juan. 

13. Insular police barracks, Puerta de Tierra, San Juan. 

14. San Geronimo powder magazine, Puerta de Tierra, San Juan. 

15. Girls' Charity School, Santurce, San Juna. 

16. Boys' Charity School, Santurce, San Juan. 

17. Convalencia, Rio Piedras, San Juan. 

18. Leper Colony, Cabras Island, San Juan. 

19. Jail and court building, Ponce. 

20. Blind Asylum, Ponce. 

21. Public Works Building, Ponce. 

22. Capitania del Puerto, Ponce. 



PORTO RICO. 117 

23. Capitania Playa de Mayaguez. 

24. Old agricultural station, Mayaguez. 

25. Barracks, Mayaguez. 

26. District Jail, Arecibo. 

27. District Court Building, Arecibo. 

28. Industrial School Building, Arecibo. 

29. Government Industrial building, Caguas. 

30. Government building, Humacao. 

31. Government building, Vieques. 

These repairs consisted principally in the installation of sanitary 
plumbing systems in the Intendencia, Fortaleza No. 5, and in the 
Presidio, and in general plumbing affairs in various buildings; also 
in renovating and improving the government building at Caguas, 
repair of building occupied by the insular police at Ponce, con- 
struction of a new drafting room in the intendencia building, and 
for general repairs and painting in various buildings. 

The $10,000 appropriated for water and the $5,000 for light, proved 
insufficient and it was necessary to transfer from the $16,303.26 for 
repair and maintenance of public buildings the sum of $2,900. 

CHAPEL BOYS' CHARITY SCHOOL. 

This monej' was expended for the building of a new roof and 
general conservation of the building. 

REFORM SCHOOL. 

As it was impossible to obtain from the city of Mayaguez a good 
title on the land offered by the municipality for the reform school, 
so no money of the $20,000 available for the construction of this 
building has been expended, except the salary of the employee en- 
gaged upon the drawing up of plans and the necessary expenses in 
investigating the proposed site. The plans are completed and work 
can be begun upon the acceptance of the site by the governor. 

Work at the district court of Arecibo, military barracks at Ponce, 
and infantry barracks of Mayaguez, for which special appropriations 
or allotments were made, consisted principally in the installation 
and fitting up of the buildings for the purposes intended. 

ARECIBO DISTRICT JAIL. 

In September, 1905, a contract amounting to $28,995 was awarded 
for the construction of the Arecibo jail. This building was practi- 
cally completed on June 30, 1906. 

As the lease which the insular government held for the building 
used as a jail at Puerta de Tierra expired on June 30, 1906, and as 
the city, at a sale held on February 20, 1906, §pld this building to 
the American Tobacco Company, we were forced to provide quarters 
before July 1 for the prisoners therein confined. Knowing that the 
Arecibo jail would be completed by July 1, the great necessity was 
to provide quarters for the sick, women prisoners, and men awaiting 
trial. It was decided that the only way that this could be done be- 
fore July 1 would be to build a second story on the Presidio. Work 
started on April 3, and the prisoners began to move in June 30, 1906. 

The money allotted for the boys' charity school, girls' charity 
school, Manicomio, and leper colony, was expended principally in 
general repairs of the buildings, such as new floors, improving the 
plumbing and general painting. 



118 PORTO RICO. 

PUBLIC LANDS. 

Owing to the fact that there never has been an appropriation made 
for the survey of public lands it is absolutely impossible to make 
any definite report on this important branch of this department. 

During the past year the chief of the bureau and the clerk have 
been "busy classifying and tabulating the records concerning public 
lands. In addition, the following surveys have been made: The 
property known as i; Los Oficiales " at Mayaguez, 200 acres ; normal 
school property at Rio Piedras, 68 acres, and also a survey near the 
lagoon San Jose and Torrecillas which will give an approximate 
area of 3,500 acres. 

Realizing the necessity of having surveys made it was possible 
to use some of the money appropriated for contingent expenses, 
office of the commissioner. 

Table No. 5 shows the land and buildings rented under article 135 
of the political code. 

Propositions for renting public lands have been received from 
nearly all the towns of the island, but owing to the lack of surveys 
and the very poor descriptions we have of the public lands it has 
been impossible to lease more public properties than those shown in 
Table No. 5. 



POETO KICO. 



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POKTO KICO. 



The insular treasury is collecting rent on public lands and build- 
ings amounting to $6,290.54 per year. The land rented being less 
than 1 per cent of the total acreage of public lands in Porto Rico, 
much of which can not be considered as first class, it will be seen that 
a great benefit would be derived from the renting of all the public 
lands in the islands. This, however, can not be done until a sufficient 
appropriation is made for the purpose of making surveys and having 
the land properly registered. 

With the $5,000 appropriated by the last legislature for use in the 
fiscal year 1906-7, we will be able to make surveys of land which, 
when rented, will show an annual return to the insular treasury far 
in excess of the amount appropriated. 

I would recommend for the next fiscal year an appropriation of at 
least $20,000. 

BUREAU OF DOCKS AND HARBORS. 

The collection of harbor dues in San Juan, Ponce, and Mayaguez 
shows an increase of $4,119.31 over the previous fiscal year. The 
following comparative table will show the monthly collection in the 
three ports for the pasts two year. 

Table No. 6. — Harbor fees in San Juan, Ponce, and Moyaguez. 



San Juan. 



Month. 



Fiscal Fiscal 

yeai 1905-6. year 1904-5, 



July ! SI, 917. 67 

August 1, 689. 64 

September 1, 193. 20 

October I 1, 643. 24 

November I 1, 232. 13 

December ! 1, 921. 31 

January ! 1, 720. 12 

February 1, 636. 29 

March ; 1, 568. 47 

April ! 2, 287. 35 

May ! 2, 188. 78 

June j 1, 830. 47 



$2,053.98 
1, 365. 01 
1,282.70 
1, 102. 10 
1,386.82 
1, 222. 34 
1, 692. 12 
1, 743. 47 
1, 487. 16 
1,823.72 
1, 370. 69 
1,415.44 



Total 20,828.67: 17,945.55 3,614.72 j 3,248.27 



Ponce. 



Fiscal Fiscal 

year 1905-6. |year 1904-5. 



$259. 19 
234. 30 
229. 80 
216. 30 
294. 10 
320. 69 
346.35 
147. 40 
560. 63 
283. 61 
322. 15 
400.20 



S153. 01 
114. 47 
195. 68 
321.85 
332. 58 
339. 94 
202. 20 
264. 86 
455.30 
166. 63 
352. 27 
349. 48 



Mayaguez. 



Fiscal Fiscal 

year 1905-6. year 1904-5. 



8162. 09 
145.25 
109. 67 
183. 79 
220. 32 
278.42 
300. 24 
132. 63 
338. 08 
308. 02 
342.93 
261. 13 



2, 782. 57 



$159. 75 
109. 00 
186. 24 
211.48 
123. 18 
171.28 
125. 53 
211.56 
174.29 
104. 77 
163. 68 
172. 07 



1,912.83 



RECAPITULATION. 

Grand total fiscal year 1905-6 $27, 225. 96 

Grand total fiscal year 1904-5 23, 106. 65 

Increase 4, 119. 31 

Increase 4, 119. 81 



PORTO RICO. 



121 



Table No. 7 gives particulars as to the number, character, and 
tonnage of vessels for the past two years. 

Table No. 7. — Number, character, and tonnage of vessels entering San Juan, Ponce, 

and Mayaguez. 





San Juan. 


Ponce. 


Mayaguez. 




year 1905-6. 


Year 1904-5. 


Year 1905-6. 


Year 1904-5. 


Year 1905-6. 


Year 1904-5. 




i 

02 


.7* 

03 
02 


i - 

02 


"3 

02 


i 
« 

02 


'3 

02 


i 

CD 
02 


'3 


i 

CD 


'3 

02 


1 

CD 
+^> 
02 


'3 


American: 


215 
720, 859 

128 
401, 482 

73 

2 
18 


52 
38, 151 

20 
3,131 


184 
522, 629 

129 
267, 493 


35 
25,982 

25 
4,419 


111 

332, 499 

108 
276, 371 


41 
25, 616 

33 

5,270 


78 
234,673 

123 
277, 654 

3 


32 
18, 566 

36 
6,037 


92 

308,945 

80 
153, 607 

17 

1 


25 
9,185 

20 
3,025 


61 
189, 092 

73 
132, 459 

9 

1 


19 




5,088 


Foreign: 


31 


Tonnage 

American Govern- 


4,215 


Fareign government 










1 




fcher vessels 









































In order to show the nature of this collection I insert below the 
text of sections 57 and 58 of the harbor regulations: 

Sec. 57. Every vessel coming from ports outside the island of Porto Rico 
that enters, uses, or makes fast to any pier, wharf, or bulkhead in any harbor 
of Porto Rico, or makes fast to any vessel lying at such pier, wharf, or bulk- 
head, or to any other vessel lying outside of such vessel, shall pay for the use 
of such pier, wharf, or bulkhead for every calendar day or part thereof, as 
follows : 

Every vessel of 200 tons or under. 2 cents per ton ; and for every vessel of 
over 200 tons, 2 cents per ton for the first 2Q0 tons, and three-quarters of 1 cent 
per ton for every additional ton. 

Only 50 per cent of the above shall be collected on vessels having less than 50 
gross tons. 

These charges will be based on the vessel's gross tonnage, to be ascertained 
from the vessel's register, license, or other official documents, and in the ab- 
sence of such documents, upon the estimate of the captain of the port. 

Sec 58. Every vessel coming from ports outside of the island of Porto Rico, 
entering and using a harbor and not using or making fast to any pier, wharf, 
or bulkhead, or does not make fast to any vessel lying at a pier, wharf, or 
bulkhead, or to any other vessel lying outside of such vessel, but uses the public 
wharf or bulkhead or shore for the purpose of loading or unloading merchan- 
dise or ballast by means of lighters, shall pay for a calendar day, or a part 
thereof, while so engaged in loading or unloading by means of lighters, the 
following : 

Every vessel of 200 tons or under, one-half of 1 cent per ton ; for every vessel 
of over 200 tons, one-half of 1 cent per ton for the first 200 tons and one-fourth 
of 1 cent per ton for every additional ton. 

Only 50 per cent of the above shall be collected on vessels having less than 
50 gross tons! 

These charges will be based on the vessel's gross tonnage, to be ascertained 
from the vessel's register, license, or other official documents, and in the ab- 
sence of such documents upon the estimate of the captain of the port. 

The charges provided for in this section shall not apply to vessels calling for 
coal, water, or provisions necessary for a continuance of their voyage. 

BUREAU OF INSULAR TELEGRAPH. 

It has been found necessary, within the past few months to make 
certain radical changes in the bureau of insular telegraph. I found 
upon my arrival on the island that the telegraph service was costing 
the government of Porto Eico almost $20,000 annually in excess of 
its receipts. Upon investigation it was found that this was largely 
due to an unequal distribution of salaries, and that operators in offices 



122 PORTO RICO. 

where the receipts were barely sufficient to pay for office rent were 
receiving salaries equal to those received by operators in large offices 
where the receipts were fairly high. It appeared also that while 
many of the offices in the island were supplied rent free by the vari- 
ous municipalities, other towns giving a minimum of receipts charged 
rental for the use of offices for telegraph purposes. I wrote to the 
alcaldes of the various municipalities where office rent was charged, 
calling their attention to the fact that many municipalities sup- 
plied the government with office room for telegraph stations without 
cost, and requested that they submit the matter to their respective 
municipal councils with a view to securing the same facilities. In 
13 cases the municipalities agreed to do this. The others intimated 
that they also would supply us with office rent free, beginning with 
the fiscal year in July. There is every reason to expect that with 
the exception of the large stations in Ponce and Mayaguez, office 
rent will not be a factor in the expenditures of the insular telegraph 
service after January 1, 1907. 

In one station, Quebradillas, where the receipts were unusually low 
and which has telegraphic service at a distance of a few kilometers on 
either side, it was decided to remove the office altogether. 

At other points where receipts were very low and where there did 
not seem to be any possibility of such increase as to warrant the pay- 
ment of an operator's salary, the telegraph station was removed and 
a telephone substituted, the operation of which only costs the govern- 
ment about $5 a month. So far this scheme has worked with great 
satisfaction. 

The minimum salary of operators was $40 per month, and while 
the majority of the operators were employed at this salary there were 
others who received $1,080 per annum. In a great many cases the 
salaries of the operators exceeded the receipts of the office. In order 
to prevent the insular telegraph service being such a financial drag 
upon the government it was decided to make a general reduction in 
the salaries of the operators, reducing the salaries of those receiving 
$40 per month, in most cases, to $30, and making a proportional 
decrease through the service, until an adjustment of the actual cost 
of maintaining the telegraph service is definitely established. It was 
also decided to increase the price of paid messages to 25 cents per 10 
words, which is the general rate in the United States. When these 
regulations were put into effect the operators of the insular telegraph 
service and the people of Porto Rico were notified that these measures 
were only temporary, and that as soon as an adjustment could be 
made increases would be made in the salaries of those operators who 
merited such treatment, and at the same time the price of paid mes- 
sages would be reduced. This arrangement went into effect on June 
1, 1906, and has worked very satisfactorily, the receipts of the office 
showing a decided increase over the expenditures. 

It is hoped by the new arrangement to have the bureau of insular 
telegraph in such a condition by January 1, 1907, that the service will 
be self-supporting, and that the price of paid telegrams will be 
reduced to a minimum. 

Table No. 8 shows the cash receipts and expenditures, earnings, etc., 
for the bureau of insular telegraph during the year 1905-6. 

A comparative statement in tabulated form, Table No. 9, is added, 
giving cash receipts and expenditures for the past three years. 



POETO RICO. 



123 



Tujle No 8.— Statement showing amount of cash receipts, computed value of free mes- 
sages including the difference between half and full rates on official messages, apparent 

I gross earnings, amount expended for salaries and incidentals, earnings— net and appar- 
ent — and the deficit for each month of the fiscal year 1905-6. 





Cash 

receipts. 


Value of 
free mes- 
sages. 


Appar- 
ent 
gross 
earnings. 


Expended. 


Total 
ex- 
pended. 


Earnings. 




Fiscal year 
1905-6. 


Salaries. 


Inciden- 
tals. 


Net. 


Appar- 
ent. 


Deficit. 




$3,016.43 

2,875.03 


82,245.38 
2,079.98 


$5, 261. 81 
4, 955. 01 
4,961.18 
4,932.79 
4,243.21 
4,457.89 
6,075.34 
5,221.25 
6, 854. 78 
5,277.12 
5, 571. 37 
5, 366. 32 


$4,031.65 
4,039.66 
4,037.68 
4,065.65 
4,060.67 
4,051.01 
4, 061. 65 
4, 062. 33 
4,066.67 
4,034.48 
3, 685. 67 
3, 460. 67 


$261. 71 
420.47 
526. 55 

1,671.88 

1,029.59 
935. 57 

1,152.39 
601. 89 
486. 55 

2,244.42 
539. 46 

2, 106. 23 


$4,293.36 
4, 460. 13 
4, 564. 23 
5,737.53 
5,090.26 
4, 986. 58 
5,214.04 
4, 664. 22 
4, 553. 22 
6,278.90 
4,225.13 
5, 566. 90 




$968. 45 
494. 88 
396. 95 


$1,276.93 


August 

September . . . 

October 

November . . . 
December 




1,585.10 
1, 473. 91 






1,539.2; 


3, 733. 21 
3,757.75 
5, 385. 20 
4, 557. 89 
5,967.36 
4, 396. 85 
4, 754. 82 


510. 00 
700. 14 
690. 14 
763. 36 
887.42 
880. 27 
816. 55 






1.S67.05 






1,228.83 


$171.1'! 


861.30 

557. 03 

2, 301. 56 




January 

February 


106. 33 


1, 414. 14 




March 

April 


1,882.05 


529. 69 


1,346.24 




May 

June 


958. 78 












50, 341. 24 


12.936.85 


63, 278. 07 


47, 657. 79 


11,976.71 


59, 634. 50 


2,114.99 


6, 926. 41 


11,408.25 
2,114.99 






1 












9,293.26 





















Note.— The column ' ' Deficit " shows the difference between cash earnings and expenditures. From 
October 1, 1905, all official messages except Police, Army and Navy paid half rate. 

Table No. 9.— Statement showing total appropriated, total expended for salaries and 
incidentals, total cash receipts, total value of free business, total value of messages han- 
dled, and deficit for fiscal years 1903-4, 1904-5, 1905-6. 



Fiscal years. 


Appropri- 
ation, sal- 
aries and 
incidentals. 


Expended, 
salaries 
and inci- 
dentals. 


Cash re- 
ceipts. 


Value of free 
business, in- 
cluding dif- 
ference be- 
tween half 
and full rate 
on official 
telegrams. 


Total value 

of messages 

handled. 


Deficit. 


1905-6 


$62, 720. 00 
58, 800. 00 
47, 751. 80 


$59,634.50 
57, 569. 57 
44, 601. 53 


$50, 341. 24 
35, 855. 79 
29,979.72 


$12,936.83 
32, 538. 99 
16,975.00 


$63,278.07 
68, 394. 78 
46,954.72 


$9, 293. 26 


1904-5 


21,713.78 


1903-4 


14, 621. 81 







A falling off in free business for the f seal year 1905-6 is shown and it is thought that the shrinkage is 
due to the fact that messages on official business formerly transmitted free have teen charged fcr, since 
October 1, at one-half of the commercial rate. The total receipts for the year on half-rate messages is 
$1,325.10. 

The column " Deficit " shows the difference between expenditures and cash receipts. By adding the 
value of " Free business " to cash receipts, the apparent earnings would be as follows: K03-4, $2,353.19; 
1904-5, $10,825.21; 190.5-6, $3,643.57. 

During the fiscal year 1905-6, 105 kilometers of line were built at a cost, for lab or, transportaticn, etc. 
of $3,176.60. and 400 new poles were paid for, costing $1,159.70, which amounts are included m the item 
of $59,634.50. 

DIVISION OF ARCHIVES. 

During the past year the employees in the division of archives 
have been busy classifying and indexing the various documents in 
the archive rooms. 

We have issued certified copies of documents on which there have 
been placed internal-revenue stamps representing an income to the 
insular government of $142.14. We have also made blueprint plans 
and maps of the island, on which were placed internal-revenue stamps 
amounting to $67.06. 
Respectfully submitted. 

Laurence H. Grahame, 

Commissioner of the Interior. 
Hon. Beekman Winthrop, 

Governor of Porto Rico. Son Juan, P. R. 



Exhibit F. 

REPORT OF THE COMMISSIONER OF EDUCATION. 

Office of the Commissioner of Education, 

Department of Education, 
San Juan, Porto Rico, July 1, 1906. 

Sir : I have the honor to submit herewith the report of the depart- 
ment of education for the year 1905-6. 

Progress in educational matters has been uninterrupted since the 
establishment of civil government in Porto Rico in 1900. At first 
there was a rapid increase in the number of schools, and with it in 
the number of children enjoying an education. Later, with compara- 
tively stationary appropriations, this rapid expansion has given 
place to a more quiet and unobtrusive development, marked by 
greater thoroughness in detail and greater intensity of effort. The 
changes involved in such a movement are individually apparently 
insignificant; collectively they maj^ constitute almost a transforma- 
tion of the system. 

Only by a very elaborate description of the present system of schools 
and school administration, including comparisons with former con- 
ditions, could the whole import of these many and gradual changes 
be made manifest. Such a description would exceed the limits set 
for an annual report. But we may consider the events of the year 
not as isolated facts, but in their relation to the existing educational 
system, thus obtaining a better idea of their significance and at the 
same time a survey of the system as a whole. Instead of discussing 
matters touched upon in this report in the order of their relative 
importance, they will be given the place which belongs to them in 
the system of school administration and schools already established. 
An incidental notice of those features of the schools and their admin- 
istration which do not call for special treatment this year will aid 
in forming a complete picture of our school system. 

OFFICE ORGANIZATION. 

The organization of the central office was modified on July 1, 1905, 
by changes introduced in the system of disbursements. By the crea- 
tion of the office of disbursements in the treasury department and the 
appointment of the disbursing officer of Porto Rico the division of 
disbursements and accounts heretofore existing in the department of 
education was clone away with. This division had made all disburse- 
ments for the department, had prepared all vouchers for payment, 
had kept all accounts of the department, and in addition had exer- 
cised supervision over the accounts of school boards. Disbursements 
proper passed into the hands of the treasury department, but the 
124 



PORTO RICO. 125 

remaining- duties of the division remained with the department of 
education. They were merged with the division of property and sup- 
plies, which, beginning July 1, 1905, took the name of division of 
property and accounts. 

There have been no other changes in the organization of the office, 
but there were important changes in the personnel. In February 
Mr. Leonard P. Ayers, at that time superintendent of the San Juan 
district, was appointed chief of the division of supervision and 
statistics vice L. B. Sawyer, resigned, and in May Mr. E. R. Lutz, 
then superintendent of the Ponce district, took charge of the division 
of records, vice Mr. A. F. Martinez, resigned. These promotions 
were richly deserved, and have, it is believed, strengthened the office 
force by bringing into it men of large experience in the field work of 
. the department and intimately acquainted with the needs of the 
schools. In May also the chief of the division of school extension, 
Mr. A. M. Lyons, took a prolonged leave of absence, and his place 
has been temporarily filled by the appointment of Mr. L. D. Lindsley. 

APPOINTMENTS, ETC. 

Office of the assistant commissioner. — The assistant commissioner 
shares with the commissioner the general duties of directing the en- 
tire system of school administration. He assumes general charge of the 
office when the commissioner is traveling in the island on official duty 
or on leave of absence, and relieves the commissioner to a large 
extent of routine duties when the latter is occupied with his legisla- 
tive duties as a member of the executive council. In addition to 
these general duties the assistant commissioner is especially charged 
with the appointment of American teachers and with supervision 
over scholarship pupils. 

AMERICAN TEACHERS. 

During the school year 1905-6 there were employed in the depart- 
ment of education 158 American teachers. Of this number 127 have 
served as teachers of English or grade teachers, 25 as teachers in high 
or industrial schools, and 6 as special teachers of drawing and music 
in the common schools. 

Although many of these teachers have had to work under diffi- 
cult conditions, their work has been uniformly satisfactory, and to 
their conscientious labors we owe much of the success of our schools 
as a whole. Since the beginning of the present system there has 
been a constant advance in the professional standard required of 
our American teachers, until at the present time we have a corps 
whose standing in every way is equal, if not superior, to that of any 
similar body of teachers in the United States. 

The law provides that "teachers of English shall be graduates 
of a first-class high school, normal school, college, or university, or 
a teacher of extended experience holding a high-grade certificate 
from some State of the United States, or they shall pass an exami- 
nation in the English language, including writing, spelling, reading, 
and grammar, arithmetic, geography, history of the United States, 
physiology, and methods of teaching." Of the 158 licenses granted 
to American teachers for the past year, 42 were based upon diplo- 
mas of graduation from American colleges or universities, 42 upon 



126 



PORTO RICO. 



diplomas from normal schools, 50 upon diplomas from high schools, 
17 upon State certificates, and 7 upon examination. Besides the 84 
teachers who were graduates of colleges or normal schools, no less 
than 35 others had either college or normal school training in addition 
to their other qualifications. 

Our teachers come from all sections of the Union, as is indicated 
by the following tables showing the number of teachers from each 
of the States named : 



New York 39 

Massachusetts 29 

Pennsylvania 16 

Ohio 11 

Indiana 8 

Maine 5 

Michigan 4 



Nebraska 

Vermont 

Delaware. 

District of Columbia. 

Idaho 

Kansas 

New Hampshire 



New Jersey 3 



Wisconsin 

Connecticut 

Illinois 

Missouri 

Tennessee 

West Virginia 

Alabama 

Arizona 

Kentucky 

Oklahoma 

Rhode Island . 



3 

2 
2 
2 
2 
2 
1 
1 
1 
1 
1 
Virginia 1 



The increasing prominence given to English in our public schools 
in the past few years has made the careful selection of American 
teachers more than ever an essential factor of success. The assistant 
commissioner has devoted a large share of his time to this work. 
All applications received are systematically investigated, and only a 
surprisingly small proportion of the applicants prove to be satisfac- 
torj. Our teachers must possess a good education, but this is the 
simplest requirement and the one most readily met. More than 
that, they must be physically and mentally strong and of unim- 
peachable moral character. They must be prepared to accommodate 
themselves to new and ofttimes most perplexing situations and to 
meet with tact and good judgment the difficulties which are certain 
to arise. They must rapidly acquire a knowledge of the Spanish 
language, not particularly for use in the schoolroom, but that they 
may make more or less intimate acquaintance with the people among 
whom they are to live. No qualification of a good teacher in any 
part of the world can be overlooked here. The fact that we look to 
our teaching force for recruits for our corps of superintendents and 
for other higher positions is an additional reason for demanding the 
highest qualifications. 

So important is the problem of selection of American teachers 
considered that it was deemed advisable that the assistant commis- 
sioner should visit the United States during the spring months of the 
past year for the purpose of visiting colleges and normal schools and 
personally selecting new teachers for our work. This trip having 
been authorized by the governor of Porto Rico, the assistant com- 
missioner visited thirty or more colleges and normal schools in New 
England and in the central States, delivering addresses to students 
and interviewing candidates for positions in Porto Rico. The result 
of this trip seems to have been entirely satisfactory, about 50 new 
teachers having been engaged for the coming year. 

The regular work of the American teachers has been giving in- 
struction in the English language to the pupils and teachers of the 



POETO RICO. 127 

graded schools. The method followed has been to assign to each 
group of graded schools a teacher of English as a special teacher to 
visit each of the various rooms for one period of each school day. 
During the past two years it has been found possible to give a large 
part of the instruction in the English language, and many of the 
Porto Kican teachers have qualified to teach in that language. This 
has rendered it possible to change somewhat the character of the 
work of the American teachers, and during the past year a large 
number of them have served as grade teachers, teaching the upper 
grades in English. At the present time practically all the higher 
grades, in at least the larger towns of the island, are receiving in- 
struction entirely in English, the classes being taught either by 
American teachers or by specially qualified Porto Rican teachers 
working with the assistance of the American teachers of English. 
In the smaller towns it has not yet been possible to make this change, 
and there the work of the American teachers continues to be that of 
special teacher of English. 

The American teachers employed in the high and industrial schools 
and as special teachers of music and drawing work in exactly the 
same way as do teachers holding similar positions in the United 
States. Practically every one of these teachers was originally 
appointed as a teacher of English, and before being promoted to the 
higher position has had a successful experience in lower grade work. 

It is unfortunate that the department is unable to offer higher 
salaries to teachers who possess the qualifications which we require. 
In accordance with the law, the salary paid to teachers of English 
during their first year's service amounts to $540 for the school year. 
For the second year the salary may be increased to $630 for the school 
year, but no further increase is possible. Many of our best teachers 
remain no more than two years, since experienced teachers who are 
so well qualified for advanced work are usually able to obtain higher 
salaries in the States. The majority of those who remain with us 
longer than two years are influenced by some other consideration than 
the salary ; many of them are held by the natural charm of the island 
and the opportunity to work in a place where results are so readily 
seen and appreciated ; life in a tropical country appeals to many, and 
some, who have a special interest in the Spanish language, are willing 
to remain for the sake of perfecting their knowledge of that tongue. 

GOVERNMENT BENEFICIARIES. 

In accordance with two separate provisions of the school law the 
government of Porto Rico is maintaining in the United States 45 
students, who are being educated in various schools and colleges. 
Under what is commonly known as " House bill 35," 25 young men 
are receiving professional education. The first of these pupils were 
sent five years ago and provision was made for five years' study. 
With very few exceptions these young men were not prepared to 
begin secondary study, and few of them were able to complete their 
preparatory work and a professional course within the period of five 
years. The legislature, recognizing the necessity of allowing these 
students sufficient time to complete their courses, at its last session 
passed an act authorizing an extension of the time of those students 
whose, work had been satisfactory, but who would be unable to finish 
within the prescribed period. In accordance with this act, the 



128 POKTO RICO; 

scholarship of 9 young men were extended for one year. Three young 
men, Alejandro Ruiz Soler, of Quebradillas ; Leopoldo Mercader, 
of Aguadilla, and Herminio Irrizarry, of San German, finished their 
courses this year, graduating from the University of Maryland, 
Lehigh University, and the Massachusetts Institute of Technology, 
respectively. One student who failed to graduate was not granted 
an extension of time. One other student resigned his scholarship at 
the close of the school year. The commission charged with the exe- 
cution of this section of the law decided to grant scholarships in the 
future only to applicants who might be already sufficiently well pre- 
pared to enable them to complete a professional course within the 
allotted five years. To fill the vacancies for the coming year the 
commision has appointed Carlos Kehrhahn, graduate of the Central 
High School of Porto Rico, San Juan, Antonio Ma}^oral, jr., Antonio 
S. Otero, Juan Diaz, and Gil Velazquez, graduates of the Ponce High 
School. 

Under what is known as " Council bill 12 " 10 young men and 10 
young women are being given an education in industrial arts and 
trades. The time allowed these students is four years, and of those 
originally appointed nearly all finished their course one year ago. 
The following named 7 young men and 10 young women were 
appointed under this law and are now studying in Tuskegee Normal 
and Industrial Institute, Alabama: Isidro Alonso Colon, Guayama; 
Salvador Barea, San German; Pedro Concepcion, Fajardo; Tomas 
Montes Rivera, Arecibo ; Eduardo Rodriguez Davila, Yabucoa ; An- 
dres Tirado, Coamo; Onofre Torres, Aibonito; Victoria Altiery, 
Mayaguez; Juana Colon Colis, Naguabo; Micaela Ellis, Ciales; 
Ignacia Esturio Sanchez, San Juan; Petra Guzman, Yauco; Mon- 
serrate Mercado, Ponce ; Asuncion Rivera, Juana Diaz ; Raf aela 
Rosa Pihero, Caguas; Agripina Vergas, Bayamon; Ana Velardo, 
Aguadilla. 

In the legislative session of 1903 an act was passed providing for 
28 scholarships in the insular normal school at Rio Piedras, to be 
granted upon examination to 4 candidates in each of the 7 electoral 
districts of the island. During the first year, because of the lack 
of suitable candidates, only 25 scholarships were granted, the total 
number of 28 not being filled until the following year. The law 
providing for these scholarships was amended by the legislative 
assembly of 1906. Scholarships are granted for two years only, at 
the end of which time students may receive the elementary certificate 
of the normal school, but the commissioner of education is author- 
ized to select 10 students who have satisfactorily completed two 
years' work and to extend their scholarships until they have com- 
pleted the four years' course. 

Of the students originally granted scholarships one only, Maria M. 
Castro, of Mayaguez, has completed the four years' course, graduat- 
ing in June, 1906. Twenty-three have received the elementary cer- 
tificate granted at the completion of the two years' course. At the 
present time six have been in attendance at the normal school three 
years and have been reappointed for another year; one student has 
attended two years and has been appointed for two years more; 
13 students have finished the first year's work and are about to enter 
upon their second year, while 8 students have been newly appointed 
for a two year's course. 



PORTO RICO. 129 

LICENSES, ALLOTMENTS, ETC. 

Office of secretary, chief of division of records, — The secretary's 
office is charged with the issue of teachers' licenses and certificates, 
the appointment of members of school boards when vacancies occur, 
the allotment of schools to the various municipalities, and the ap- 
proval of appointments proposed by the local school boards. This 
office handles all mail received and is custodian of the correspondence 
files of the department, 

LICENSES. 

Licenses are issued originally upon the results of examinations held 
by the department or upon presentation of diplomas. Graduates of 
the normal school of Porto Rico, both in the elementary course of two 
years and the full course of four years, are entitled, when they have 
the age required by law, to receive licenses as graded teachers. If 
too young to be granted this grade they receive rural licenses. There 
is no provision permiting the issue of a teacher's license without ex- 
amination to the graduate of the high schools of Porto Rico. In case 
of Porto Rican graduates of normal schools in the United States, the 
department has authority to issue a rural but not a graded license. 
One year's experience in the schools of Porto Rico is required before 
a graded license can be issued. This should be corrected by legisla- 
tion, placing graduates of accredited normal schools in the United 
States upon the same basis as those of the normal school of Porto 
Rico. 

A large number of licenses are issued annually as renewals of' older 
licenses. District superintendents report annually upon the work of 
the teachers and make recommendation as to renewal and the term 
thereof. If the recommendation is against the issue of a renewal, the 
case is carefully examined in the light of the past record of the 
teacher before a decision is reached by the department. The number 
of adverse reports diminishes from year to year. 

Superintendents also recommend the term of years for which 
licenses should be extended. It is to be regretted that there should be 
so much diversity in these recommendations. While the idea of hav- 
ing licenses valid for a term of years seems a suitable one, and one 
adapted to stimulate teachers to their best efforts, it is very dubious 
whether its actual results are beneficial. In the first placej it is sub- 
ject to the objection already noted, that different superintendents 
judge the work with different degrees of rigor, and the duration of 
the license appears to be less the result of excellence in school work 
than of leniency in the judgment of the superintendent. Again, while 
the desire for a long-term license may often stimulate to effort, its 
possession may have the opposite result. Teachers who do their work 
faithfully and well are surer of their position, with one year licenses 
than those with longer licenses and a disposition to shirk. It would 
generally lighten the work of the department and work no injury 
whatever to the teachers if licenses were to be renewed for one year 
only. 

SCHOOL BOARDS. 

The local school boards are elected every two years. The position 
is one of honor and carries no salary. Those elected to the position 
oftentimes fail to qualify by taking the necessary oath of office, or, if 
S. Doc. 135, 59-2 9 



130 PORTO RICO. 

they do so, frequently resign after a comparatively short period of 
service. When such vacancies occur, or when they are created by the 
removal of the members of the school boards, the law requires that, 
their successors be appointed by the commissioner of education, care 
being taken that the persons appointed shall be members of the same 
political party as those whom they replace. The work of rilling 
these vacancies is considerable, though the result is, in a great many 
cases, to secure school boards better disposed to work in harmony 
with the department. 

ALLOTMENTS. 

It is made the duty of the commissioner of education by law to 
fix the number of schools to be opened in each school district- 
Greater attention has been given to the allotment for the coming 
school year than ever before. 

The allotment of schools can not be made in accordance with any 
one guiding principle. Unquestionably, the most logical basis upon 
which to determine the number of schools for the different localities 
would be the population of the several districts. This must always 
be one of the principal considerations, but it can not be the exclusive 
one, as the cost of supporting the schools falls in part upon the local 
authorities. There are towns in the island which are very populous, 
but which, at the same time, are very poor and wholly unable to 
support the schools to which their population would seem to entitle 
them. On the other hand, there are communities relatively sparse in 
popuiation, but rich in resources, and amply able to build and pro- 
vide for a larger number of schools than their population would 
warrant in comparison with the whole number of schools to be 
allotted. The allotment of schools in the aggregate must be inferior 
to the educational needs of the island, so long as the available appro- 
priations are not greatly increased. The amount of the appropriation 
determines, approximately, the aggregate number of teachers who can 
be employed. It then becomes the question to distribute them equita- 
bly among the different localities. Up to the present time the depart- 
ment has had little information, except of the most general kind, as 
to the resources of the different localities and has been unable to 
distribute the schools with any reference to the ability of the towns 
to support them. With the system of school-board accounting now in 
vogue, it has been possible to make a more careful study of this aspect 
of the question of school allotment. The number of schools allotted 
to each district is a pretty fair test of the expenditures which will be 
locally necessary. Each teacher receives from the school board a 
certain sum annually in lieu of house rent, and there must needs be 
as many schoolrooms generally rented for the purpose as there are 
teachers. These two elements, which rise and fall with the number 
of teachers assigned, constitute the great bulk of the local expendi- 
tures for schools. An effort has been made in the present year to 
keep the expenditures for these two objects in a normal and natural 
relation to the school-board income by carefully fixing the number 
of teachers to be assigned. The necessity for this measure arose in 
determining the assignment of teachers to the school boards in the 
disannexed municipalities which came into existence on July 1, 1906, 
and also in the districts from which these new municipalities were 
subtracted. Several of the new towns now on an independent basis 



POETO RICO. 131 

have received a less number of schools than was granted to them 
when they were annexed to other municipalities. Applying the 
principle above set forth generally to the towns in the island, it was 
found necessary to reduce the allotment in some of the older towns 
not affected by the creation of new municipalities. The measure has 
seemed harsh and has given rise to no inconsiderable protest. Its 
purpose has, however, been in all cases very clearly explained, and 
it is believed that good results will follow the new distribution. 
The department has proceeded in this matter on the principle that 
effective school work could not be done where the schools were inade- 
quately equipped and where the local school boards were deeply 
involved in debt with school teachers and householders clamoring 
for the money due them. A healthy condition of the local finances 
is an indispensable requisite to good work in the schools. In making 
the allotment for the coming year the number of schools in the 
island, as a whole, has been somewhat increased, though in particular 
districts there may have been a diminution. 

As before indicated, the necessity for such action lies in the charges 
imposed by law upon the local school boards, especially in the matter 
of paying house rent to teachers. The minimum house rent is $3 
a month for rural teachers and $10 a month for graded teachers. If 
the smaller interior towns are to have graded teachers, from a certain 
point of view house rent is too high and should be reduced. Under 
present conditions there are more graded teachers than places for 
them, and there should be no difficulty in securing, even in the less 
desirable localities, graded teachers who would accept from the 
boards a house rent inferior to $10. If the house rent of teachers be 
considered not as an addition to the teacher's salary, but, as it really 
pretends to be, a compensation in lieu of house rent, it may safely be 
inferred that in many of the smaller towns of the island the sum of 
$10 is considerably in excess of what need be paid as rent for house, 
and this reduction could be defended on this ground. 

SUPERINTENDED CE . 

Division of supervision and statistics. — -The chief of the division of 
supervision and statistics, who is also designated as the general 
superintendent, has general charge of the field force of the office. He 
receives from superintendents the records of their work in the inspec- 
tion of schools and all statistical forms. relating to the school work. 

SUPERVISION. 

Eadical changes have been effected in the work of this division, 
which have resulted in a more adequate supervision, improved statis- 
tics, and a better relation between the two. The first step was the 
establishment of a weekly report on enrollment and attendance from 
every school in the island. After the schools were well under way, 
so that all initial difficulties might be deemed to have been overcome, 
a statistical summary giving average enrollment and attendance for 
the week ending November 10, 1905, was prepared. This compara- 
tive statement by municipalities was sent to the superintendents for 
their information. At the same time a careful study was made in 
the department, and a list was prepared of all the schools deficient 



132 PORTO RTCO. "' 

in enrollment or deficient in attendance The attention of super- 
intendents was called to these cases, and they were requested to 
report upon the cause of such deficiency in each case. 

Later in the year a comparison was made between the attendance 
reported by teachers in their weekly reports and that found by 
superintendents on their visits to the school. Substantial agreement 
was found, but our attention was called to the fact that visiting by 
the superintendents was not in all cases systematic and that the office 
records were not compiled in such a way as to bring out the facts. 
This led to an overhauling of our records and the establishment of a 
system which permits the office to know at a glance how many times 
a given school has been visited and when. The study of these records 
has enabled us to correct defects in the field work, and has placed us 
in much better relations with our field force. Apparent anomalies 
disappear upon close investigation or a knowledge of local conditions, 
which are revealed by correspondence with our officials in the field. 

In such ways as have been indicated the reforms in our statistical 
service, instituted primarily for a more accurate record of our school 
conditions, have been instrumental in improving our supervision and 
more intimately connecting the two branches of service. 

In view of the changes in the procedure of the office and the 
engrossing duties of putting the new system into operation, there has 
been somewhat less formal visiting of school districts by the general 
superintendent than in the past year. Despite this fact the relations 
of the central office with the field superintendents are more intimate, 
and the superintendent is much less isolated than before. Visits of 
superintendents to the San Juan office have possibly been more fre- 
quent, and such visits are very fruitful in suggestion. 

STATISTICS. 

The reorganization of the statistical work of the office contem- 
plated (a) fuller information as to the schools and (b) a better dis- 
tribution of the work throughout the year. The particular prob- 
lems involved in the work will be discussed in connection with the 
results. We are concerned here with its administrative features. 
The innovations were the weekly report of enrollment and attendance 
and the census of March 2, 1906. The purpose of the former was to 
give a record by weeks which would show the rise and fall of inter- 
est in the schools. The object of the second was to give a more com- 
plete record of sex, age, grades, and years of school attendance than 
could be demanded at the end of the year. 

A better distribution of work followed from the fact that the rec- 
ord of enrollment and attendance being continuous the compilation 
of annual averages could proceed throughout the year. The very 
minute analysis of the census results could not have been made in the 
interval which elapsed between the close of school and the prepa- 
ration of this report. 

By reason of these changes the term and annual reports were 
greatly simplified and the burden of statistical work much more 
evenly distributed for all concerned — teachers, superintendents, and 
office force. 

The careful attention given to the.se statistical features revealed 
considerable gaps in our exact- records of school conditions and 
prompted several important minor inquiries. 



POETO KICO. 133 

THE FIELD FORCE. 

The year has been marked by a number of changes in the field 
force. In October a vacancy occurred in the Carolina district by 
the death of Mr. E. L. Hill. He had been superintendent since 1899 
and had rendered loyal and faithful service. Mr. Spaulding was 
transferred from Aibonito to Carolina, and Mr. John F. Packard, a 
graduate of Boston University, who had been in the previous year 
assistant superintendent in Ponce, succeeded Mr. Spaulding at Aibo- 
nito. Mr. J. W. Smith, of Utuado, was obliged to resign on account 
of ill health, and Mr. Glen Edwards, a graduate of Marietta College, 
who had occupied a place as English teacher in Naguabo and 
assistant superintendent in San Juan, was appointed in his place. 
In the middle of the year Mr. Ayres was appointed general superin- 
tendent, and the vacancy in San Juan was filled by the transfer of 
Mr. Edwards, and the resulting vacancy in^Utuado was filled by the 
appointment of Mr. Manuel G. Nin, principal of schools in Yauco. 
Since the school year closed. Mr. Charles H. Terry, a graduate of 
Wesleyan University, formerly principal of the Ponce high school, 
has been appointed superintendent in Fajardo. There have been 
no other appointments as yet, but a number of transfers have been 
made. Before the year opened Mr. Mellowes went to Humacao and 
Mr. Warshaw was appointed to that post. Since the school year 
closed, vacancies arose in Arecibo and Toa Alta by the resignations 
of Messrs. Landron and Rodriguez, respectively. Transfers have 
been made as follows: Mr. Ducout to Vega Baja. formerly of Toa 
Alta; Mr. Zimmerman to Arecibo, Mr. Fourcaut to Aguadilla, Mr. 
Packard to Guayama, and Mr. Kelley to Ponce. There are vacancies 
at present in Aibonito and San German, which will be filled before 
the school year opens September 24. 

The relations of the field force of superintendents with the office 
have been, as already noted, very intimate. A high level of efficiency 
has been maintained in most of the school districts, and the efforts 
of the department have been warmly seconded by the district chiefs. 

The annual conference of superintendents was held in January in 
Arecibo. By a careful preparation of the programme excellent 
results were obtained and fruitful discussions ensued. Four topics 
only were discussed. To four of the superintendents, carefully 
selected for their fitness to deal with them, was intrusted the prepa- 
ration of a paper: Copies of the paper were sent to the office a 
month before the meeting and distributed to the persons especially 
selected to discuss the papers. Public sessions were also held, which 
gave qualifying evidence of interest in educational matters. 

The service of superintendents as institute directors in other dis- 
tricts and as members of examining boards has given them opportu- 
nity for observing school work and exchanging views which can 
not fail to produce valuable results. 

The record of work done in the various school districts, as shown 
in the annual reports of the superintendents, shows generally marked 
progress. 

EXAMINATIONS. 

Office of superintendent of examinations. — The department con- 
ducts annually a variety of examinations for pupils of the schools of 
the island aspiring to the eighth grade diploma, for licenses to teach 



134 PORTO RICO. 

in the schools of Porto Rico, and for the teachers themselves exami- 
nations in English for Porto Rican teachers and in Spanish for 
American teachers. The superintendent is aided by an examining 
board, which assists in the preparation of questions. 

It is gratifying to note a general improvement in the results. This 
has been obtained by better preparation and by insistence upon 
greater care in recommending candidates for examination. Happily 
this 'greater rigor has not been accompanied by any substantial fall- 
ing off in the number of candidates. 

EIGHTH GRADE DIPLOMAS. 

Examinations for the eighth grade diploma were held very gener- 
ally throughout the island. This is in itself noteworthy, as in former 
years a number of districts were without candidates. While the 
measure of success was far from uniform in the various districts, 
the general results were encouraging in comparison with earlier years. 
This is due doubtless to the fact that the applicants had obtained a 
larger part of their preparation in the schools established since the 
American occupation of the island. As time progresses we shall 
have a better test of the efficiency of our work, when the applicants 
will have obtained all their preparation in our schools. 

A careful study was made of the results of this examination with a 
view to exhibiting to superintendents the value of proper prepara- 
tion. Candidates were divided into classes according to whether 
they had a full years' training in eighth grade or only a part of the 
year, or whether they had ever been formally rated as eighth-grade 
pupils, distinction being made also of those who were prepared in 
eighth grades taught separately and those who were taught in the 
eighth grade in the same room with pupils of loAver grades. As was 
to be expected the best prepared groups showed the largest percent- 
age of success. 

teachers' licenses. 

Examinations for licenses as rural teachers have been eminently 
satisfactory. It is true that the Manual of Examinations established 
fixed standards for the admission of candidates, requiring as a rule the 
eighth-grade diploma, which were much more rigorous than those of 
former years. As a result the number of applicants dwindled very 
considerably. Yet the number who passed in the fiscal year 1906 is 
only slightly less than in the previous year. 

Examinations for graded and principal licenses gave little result. 
Papers were perhaps marked more severely than in the past, but it is 
probable also that the proportion of well-qualified applicants was in 
reality smaller. Access to the higher grades in the teaching pro- 
fession is more largely sought through the normal school than in 
former years by the younger teachers and it is probable that those of 
the older teacliers who are qualified for the higher ranks have already 
taken and passed the examination. 

ENGLISH EXAMINATIONS. 

The law prescribes a graded course of study in English for the 
Porto Rican teachers. In the past year more attention was given 
to this work than ever before. Teachers were classified according to 



PORTO RICO. 135 

their knowledge of English in advanced, intermediate, and elementary 
classes. For the latter, the assistant commissioner prepared a special 
text-book, " Lessons in English," which was used with marked suc- 
cess. The results of the year's work have been quite satisfactory. An 
examination of the results showed, however, that the matter of classi- 
fication had been very unevenly handled. In some places it worked to 
the disadvantage of the teacher, placing him in a class higher than 
that in which he actually belonged, in others it worked to his appar- 
ent advantage b}^ the contrary classification. These facts were set 
forth in a circular addressed to the superintendents, and attention 
was called to the need of very careful classification if the best results 
were to be obtained. 

BUSINESS RELATIONS. 

Division of 'property and accounts. — The business relations of the 
department are now concentrated in the division of property and 
accounts. All expenditures of the department are made through this 
division, and all expenditures for educational purposes by local 
boards pass under its supervision. Accounts are kept here also of 
the text-books and other property belonging to the department. 

- ^IXPEN DITURES. 

Since the establishment of the disbursing office of Porto Bico, 
actual disbursements are not made in the several departments, but 
the work of preparing vouchers and verifying same is still under 
their charge. In the department of education, with its pay roll of 
nearly 1,500 persons, and with its considerable miscellaneous expend- 
iture, this work is not only heavy but responsible. As it is neces- 
sary at any given time to know the exact state of the appropriations, 
books must be kept of all expenditures in order that the information 
needed in the daily administration of the schools can be readily sup- 
plied. Some difficulty necessarily arose at the outset in defining 
relations between the newly created bureau of disbursements and this 
division. These difficulties are now in the way of solution. 

SCHOOL PROPERTY. 

The property in use in the schools is divided into two classes, 
expendable and nonexpendable material. The former includes sup- 
plies of all kinds and the latter chiefly text-books. With respect to 
expendable material, a careful system of distribution of supplies is in 
existence, which insures as nearly as practicable an equitable distri- 
bution of material. Superintendents are looked to for a discreet use 
of the material supplied to them. 

In the matter of text-books, allotment of new material is made 
upon requisition of the superintendents. The examination of these 
requisitions involves a consideration of the number of books on hand 
in a given district and the number of schools in which they are to be 
used. Exact formulas for the distribution of text-books can hardly 
be established, and it is believed that any hard and fast rule woulcl 
work hardship. So far as possible, the needs of each district are 
taken into consideration in connection with the resources at the dis- 
posal of the department for the purchase of books. After the 



136 PORTO RICO. 

distribution of books, superintendents are held financially responsible 
for the material intrusted to their care, and this responsibility is in 
turn shared by the principals, graded teachers, and rural teachers to 
whom books are intrusted for use. From time to time accounts are 
adjusted and settlement made between superintendents and the 
department. Comparative uniformity in text-books in the several 
districts reduces the number of articles for which the superintendent 
is responsible, and such simplification facilitates the working of 
accounts. 

TEXT-BOOKS. 

Allusion has been made in former reports to the difficulty of secur- 
ing proper text-books for the use of our schools. This difficulty is 
disappearing with the increased use of the English language in the 
schools, especially in the upper grades, which gives us a much 
greater liberty of choice, and also with the translation of standard 
works adapted for the lower grades into the Spanish language. The 
introduction of copy books having a portion of the words and 
sentences to be written in Spanish has had very excellent results. 
The next year will witness the introduction for use in lower grades 
and rural schools of an arithmetic in the Spanish language, the 
translation of which has been supervised by the department. Text- 
book reform is always very gradual. No school administration 
would think of distroying or discarding books which are fit to use. 
Where a text-book is once established, it can only be supplanted as 
the books in use wear out and become unfit for use. 

LOCAL ADMINISTRATION OF SCHOOLS. . 

Assistant chief of division of property and accounts. — Relations 
exist between the department of education and the local school 
board through the audit of the accounts of the latter bodies. They 
are responsible for the local administration of schools, expenditures 
for rent and care of school buildings and other allied objects being 
intrusted to them. They pay to teachers a monthly allowance in lieu 
of house rent. Allusions were made in my last report to the bene- 
ficial results of the system of auditing the accounts established for 
such boards. In former days the great majority of the boards closed 
up their yearly accounts considerably in debt. At the present time 
this has largely disappeared. The school boards are out of debt and, 
as a rule, are paying their obligations promptly. They have in the 
main cooperated with the department for the purpose of securing 
economy in administration. 

During the year new boards have been created in a number of 
municipalities recently disannexed from others. The creation of 
these new boards by law has considerably increased the labors of the 
department and has introduced an element of considerable difficulty 
in estimating the propriety of proposed expenditures for 1906-7. 

With two years' experience to guide us the time seemed ripe for 
codification and revision of the rules and regulations governing the 
accounting of school boards. As it was especially necessary to bring 
these rules and regulations to the attention of the new boards, it 
Avas deemed wise to issue the new regulations in parts. Two of them, 
referring to the budgets and accounts, have already been issued. A 
third section of general instructions is in preparation. 



POETO EICO. 137 

The section in relation to school budgets describes very fully the 
purposes for which expenditures should be made, and for the better 
carrying out of instructions; printed blanks for the preparation of 
budgets have been sent to the several boards. In these regulations 
especial attention was given to the matter of receipts. One of the 
difficulties of school administration heretofore has been the exag- 
gerated estimates of probable receipts, resulting in an uneconomic 
administration and frequently involving the boards in debt, since 
expenditures were generally authorized in excess of probable income. 
An analysis of the tax returns upon which the school-board income is 
based has enabled us to adopt a simple rule, the effect of which will 
be to gauge much more closely than has ever been done before the 
probable income of the school board. 

In the matter of the accounting of school boards the department 
had heretofore prescribed certain forms to be used as vouchers and 
certain forms to be used in reporting accounts to the department for 
examination. It had, however, done nothing to facilitate the prepa- 
ration of such accounts. On July 1, 1906, however, a change was 
introduced. Every school board in the island was furnished with a 
set of books, especially prepared for a simple system of bookkeeping, 
which would aid in the preparation of reports required by the 
department, and at the same time answer all the purposes which the 
board might desire. 

The present form of school-board accounts enables us to make com- 
parisons between the different boards. These comparisons in many 
cases afford useful indications of the efficiency of school administra- 
tion in the different sections. The department has from time to 
time issued circular letters to the school boards furnishing compara- 
tive statistics, which have been helpful in school administration as 
well as in the administration of the office, since it has enabled us to 
answer many points of correspondence by a reference to the statistical 
data in the hands of the several boards. 

SCHOOL BUILDINGS. 

The division of school extension was created some years ago for the 
purpose of administering such portions of the trust fund as was 
allotted to the construction of school buildings. Plans and specifica- 
tions for buildings are prepared by the division, contracts let, and 
fhe actual work of construction supervised by its field inspectors. 
With the gradual exhaustion of the trust fund and the increase of 
school construction by the local boards, the preparation of plans and 
specifications and contracts occupies a relatively larger share of time 
than before. 

The building of schoolhouses by the department dates from 1901. 
when the first money was allotted to it from the trust fund for school 
buildings. From that time to June 30, 1906, the aggregate sum 
available for school construction was $535,028.46, of which $487,276.50 
consisted of direct grants from the trust fund, and $47,751.96 has 
been paid by municipalities and school boards. Expenditures have 
been $484,072.32, leaving available for expenditure June 30, 1906, the 
sum of $50,956.14. This will be somewhat increased during the year 
by the repayments still to be made by municipalities and school 
boards. 



138 PORTO RICO. 

Allotments were made in the first instance in the year 1901-2 from 
the trust fund, in the amount of $220,000, to a general fund for school 
extension in Porto Rico. From this general fund the earlier graded 
school buildings and all rural school buildings have been erected. 
No further direct allotment to this fund has been made, but it has 
been increased by the repayments of municipalities and school boards 
and by transfers. 

Beginning 1902-3 allotments were made to the department for the 
construction of specific schoolhouses. Generally a contract was 
entered into with a municipality or a school board by which the latter 
was ultimately to pay half or more of the cost of constructing the 
buildings, by annual repayments to the treasury of Porto Rico. 
Allotments were made in the aggregate of $267,276.50, though this 
sum has been reduced by a reallotment of one sum of money which 
included the transfer of $3,200 to the general account. All of the 
buildings contracted for have not yet been completed, and there is a 
balance of $13,409.23 to the credit of these allotments. Upon the 
finished buildings there is an enexpended balance of $11,588.44, which 
represents an actual saving, which will be transferred to the general 
account as available for other buildings. 

Specific allotments have altogether ceased, and the only sums 
available for future construction are the savings already made on 
completed buildings, possible savings on the unfinished buildings, the 
further payments to be made by municipalities and school boards and 
the balance on the general account. 

As all of this balance except what is needed for current general 
expenses has already been pledged, the building activity of the 
department after the close of the present year will almost cease with 
the fulfillment of outstanding pledges. For a very few years more it 
will receive a small income from the belated payments of munici- 
palities and school boards, which may enable it to maintain an advi- 
sory staff, but will not permit any construction except perhaps an 
• occasional rural school. 

The general fund has' been drawn upon of late to construct or. aid 
in the construction of graded school buildings. While it has been 
the policy of the present administration to favor the construction of 
rural buillings, it was found that there were a number "of quasi 
agreements with various municipalities which could not be ignored. 
Moreover, the extreme uncertainty of titles to land in rural districts 
and the consideration that as much time and trouble is required to 
obtain the land for the erection of an inexpensive building in the 
country as for a more pretentious town building has favored the con- 
struction of graded schools. 

The larger buildings at Ponce, Isabela, and Patillas, mentioned in 
my last report, have been completed. The former is a handsome 
masonry structure for the use of the high and grammar schools of 
Ponce. The buildings at Isabela and Patillas are of frame construc- 
tion, simple in style but admirably adapted to their purpose. During 
the year, buildings similar in type but differing in details have been 
erected by the department at Maricao and Las Marias. 

The department has nearly completed a 6-room masonry building 
at Catano. It has awarded contracts for a frame building at Toa 
Baja, the greater part of the cost of which will be borne by the school 
board, which has obtained an insular loan for the purpose. Plans 



PORTO RICO. 139 

are nearly ready to be advertised for a masonry building at Vieques, 
and frame buildings at Aguas Buenas and Quebradillas ; when sites 
for the same shall have been secured or other formalities completed. 

Plans for simple but adequate rural schools have been provided, 
but none have as yet been constructed. Great difficulties have been 
encountered in securing sites with a perfect legal title. After much 
effort such sites have been secured at a number of points, and build- 
ing should soon begin. 

Mention was made in my last report of the growing interest in 
school construction among the local school boards. To stimulate 
construction of rural schools the department offered, at the outset, 
to duplicate the work of the school boards, but its available funds 
no longer permit it to do so. The school board of Yauco has built 
from its current funds two buildings, upon plans prepared by Mr. 
Manuel V. Domenech, at a comparatively small cost. Aguada has 
built upon the same plans, while Manati prepared its own plans for 
a very satisfactory small building built from proceeds of an insular 
loan. These buildings were constructed of wood at prices not ex- 
ceeding $600. The school board of Juana Diaz preferred masonry 
constructions, and was fortunate in securing two verj^ excellent build- 
ings at a cost of about $1,500 each. Much of the credit is clue to the 
clerk of the board, Mr. Juan Bautista Romeu, who prepared the plans 
and supervised the entire work. 

Current funds of the school boards are not adequate for large 
enterprises, but the very favorable terms upon which they can obtain 
loans from the insular treasury — 3 per cent interest and repayment 
in equal annual quantities in a term of years not exceeding fifteen — - 
places them in a position to undertake the erection of larger edifices. 
In so doing the annual charge against the boards is often not much 
larger than the annual cost of the buildings previously rented for 
school purposes. The first board to avail itself of this method of 
school construction was that of Camuy. which, with the proceeds of 
an insular loan supplemented by the treasury of the board, has 'con- 
structed two excellent 4-room buildings of the Isabela type at 
Camuy and Hatillo. The school board of Coamo has nearly com- 
pleted a six-room masonry building on the Juana Diaz type. The 
department is desirous of aiding these efforts of the school boards 
to the utmost possible extent. The plans, specifications, and con- 
tracts were prepared by the department in both cases, and at the 
request of the school board of Coamo an inspector was detailed to 
supervise construction. Loans have been granted by the- insular 
government to Lares, Rio Piedras, Bayamon, SalinasJ and Patillas 
for school construction, and applications are pending from Juana 
Diaz, Manati, Guayama, Arecibo, and San Juan. 

In the construction of graded school buildings school extension has 
had the following development : 

First. Construction by department free of cost to local authorities. 

Second. Joint construction, the department advancing the entire 
cost and the local authorities agreeing to repay a share of the cost in 
a stated number of years. 

Third. Joint construction, the department paying a part of the 
cost, and the local authorities paying the remainder, either from 
current funds or loans from the insular treasury. 



140 



PORTO RICO. 



Fourth. Construction from the funds of local boards obtained 
either from current funds or insular loans, the department furnish- 
ing plans and supervision when so requested. 

In the construction of rural schoolhouses there has been no joint 
action, either the department or the school boards having borne the 
entire cost. 

GENERAL CONSIDERATIONS. 



THE TEACHING FORCE. 



There appears to be a shortage of teachers, which is seriously inter- 
fering with the progress of school work in Porto Rico. Although 
the number of teachers allotted to the various districts in August, 
1905, was 1,139, the number of positions actually filled during the 
year was only 1,067. On the other hand there appear upon the books 
of the Department 1,326 persons holding licenses of all grades. The 
fact that teaching positions are not filled may be due to a surplus 
in some ranks and a deficiency in others, even though in the aggregate 
there may appear to be an excess of teachers over positions. The 
following figures for the principal categories of teachers are sug- 
gestive : 



Principals 

Graded teachers 
Rural teachers . 



Allotted. 



32 
411 
570 



Employed. 



32 
407 

510 



Certifi- 
cates in 
force. 



106 
488 
560 



It appears that with considerable excess in the aggregate there is 
a relatively large excess of licenses in force for principal and graded 
teachers compared with the number of positions allotted and filled, 
and a deficiency in the number of rural teachers compared with the 
positions allotted. Teachers of the higher rank, for whom no posi- 
tions in these ranks are open, must either take a school of lower rank 
or remain without positions in the schools.. An inquiry undertaken 
in February, 1906, as to the persons then holding licenses showed the 
following results: 



Grade. 


Licenseo 
in force. 


Employed 
in same 
rank as 
license. 


Employed 

in a lower 

rank. 


Not em- 
ployed. 


Per cent 
not em 
ployed 




106 
488 
560 


33 
385 
481 


59 
53 


14 
50 
79 


13.2 




10.2 




14.1 










1,154 


899 


112 


143 


12.4 







Principals 

Graded teachers 
Rural teachers.. 

Total 



The percentage of unemployed i"s comparatively small, and an ex- 
amination of the list of persons not occupied as teachers shows fur- 
ther that the number of persons who would have been available for 
appointment is much less. Of the unoccupied principals, 3 are 
engaged in school work not under the department, 3 were following 
other pursuits, leaving 8 who might possibly be deemed available for 
appointment. Of the graded teachers, 7 were pursuing further 
studies in the normal school. 4 were teaching in other schools, and 5 



POETO RICO. 141 

were in the United States, leaving 34 available for appointment. Of 
the rural teachers, 24 were still in the normal school, 2 were teaching 
in other schools, and 16 were new teachers w r ho had received their 
certificates less (ban a m.'with he fore, leading 37 who had beer, availa- 
ble for appointment when the teachers were selected. The total num- 
ber of teachers unemployed and available was therefore 79. while 
the difference between the number of teachers which it was proposed 
to employ and the number actually employed was (54. These figures 
are not introduced for a further discussion of why these 79 teachers 
did not fill the vacancies. Some are well advanced in years and re- 
tain licenses as a matter of pride. Others were unwilling to accept 
schools of lower rank than their licenses. Others, no doubt, were 
unwilling to change their residences. It is enough to have demon- 
strated how much the development of school work is hampered by 
the lack of teaching material. 

It is perfectly clear that the pressing problem of the teaching force 
is to secure an adequate supply of rural teachers. The number of 
rural schools actually opened has considerably diminished in the 
past few years. This diminution has been due to the fact that 
teachers holding such licenses have passed examinations qualifying 
them as graded teachers and that there has not been an adequate 
influx of other persons to take their places. The normal school is 
not furnishing us with rural teachers in any considerable quantity. 
While a considerable number of rural licenses is annually granted 
to those graduates of both the elementary and of the full course at 
the normal school who are too young to receive graded licenses, they 
are in the course of one or two years at the most changed into 
graded licenses. Nor has the accession through examinations been 
considerable. In earlier days access to these ranks by examination 
was numerous because there was a prospect of passing the graded 
examinations after a brief experience and securing graded positions. 
As this inducement diminishes and as positions in the graded ranks 
are filled either by those now in possession or by recruits from the 
normal school, who are much sought after, the prospect of advance- 
ment becomes very slight for the rural teacher. Those now in the 
ranks become discouraged and seek other occupations and the influx 
diminishes in volume. Yet the future development of the educa- 
tional work in the island is distinctly in the rural schools and some 
means must be found to overcome this natural tendency. The last 
session of the legislature enacted a law for the increase of salaries of 
rural teachers and it is to be hoped that this will have some effect 
in an increased number of such teachers. The fact, however, still 
remains that while the economic position of the graded teacher is 
distinctly favorable, being considerably better than that attainable 
by persons of equal education in mercantile pursuits in a great num- 
ber of the towns of the island, there is not such a disparity between 
the economic position of the rural teacher and that which persons 
of similar education can obtain in other walks of life. 

The last session of the legislature enacted a law for the appoint- 
ment of preparatory teachers which is designed to remedy this dif- 
ficulty. The law provides that under certain conditions persons 
who have passed an examination approximately equivalent to the 
first six grades of the common-school work may be appointed as pre- 
paratory teachers. While engaged in the work of instruction they 



142 PORTO RICO. 

are at the same time afforded an opportunity to continue their 
studies with a view of fitting them for the position of rural teachers. 
This measure was enacted with a view to raising up a class of teach- 
ers, especially in the smaller communities. In many of these com- 
munities there is no formal instruction in the seventh and eighth 
grades, and as no person can take a rural teachers' examination who 
has not previously obtained the eighth-grade diploma, there is in 
all such communities a dearth of rural teachers. Should this meas- 
ure prove successful it should, in the course of a few years, give 
to such smaller communities a number of well-qualified rural teach- 
ers resident in such communities and whose natural inclination 
would be to serve in the schools of those communities rather than 
to move to other parts of the island. 

Even with the accession of these preparatory teachers it does not 
seem probable that the department will be successful in materially 
increasing the number of rural schools for the present. In the 
allotments made for the coining school year permission has been 
given to employ nearly a hundred more rural teachers than were 
actually engaged in school work last year, besides 67 preparatory 
teachers. Such permission might seem without purpose, since it is 
so well known that there is an inadequate supply of teachers ; but it 
is hoped to stimulate applications for examinations, and at the 
same time to utilize to the fullest extent the existing material. A 
general increase of the allotment of schools in each locality would at 
least help to secure employment for those who have heretofore been 
unwilling to change their residences. B} r these means the depart- 
ment hopes to increase the number of rural schools, but not to the' 
full extent of the increased allotment. 

TEACHERS' INSTITUTES. 

The annual teachers' institutes conducted by the department were 
held in the spring of the year. The}^ form an element in school 
work capable of doing a great deal of good, but at the same time a 
feature wdiich without skillful management may degenerate into 
an inane waste of time. They are, wherever held, designed to offer 
to the teachers opportunity for instruction, discussion, and, perhaps, 
entertainment. I am gratified to say that in Porto Rico the enter- 
tainment feature, either in its undiluted form of recitation and 
music or thinly veiled in illustrated lectures or orations on 
" Heroism " and kindred soul-stirring topics, has never had a promi- 
nent place in our institutes. Whatever our faults we have tried to 
be serious, and whatever our mistakes our intention has been to 
help our teachers. 

In the early days of the department considerable sums of money 
were available for these meetings. Distinguished educators from 
the States, and perhaps some who were heralded as such, though 
all unconscious of the soft impeachment, were invited to address 
the teachers. The remarks in English were filtered to the teachers 
through the medium of translators, but the result of filtration was 
oftentimes not the purification of either thought or language. It 
was perhaps an advantage that appropriations were later cut down 
and the teachers and superintendents forced to rely more upon their 



PORTO RICO. 143 

own efforts, the participation of the department consisting in secur- 
ing the services of Porto Rican educators who spoke to the people 
in a language which they understood. 

This year the appropriation was omitted altogether by a legisla- 
ture bent upon economy, and the institutes had to be abandoned or 
organized upon a new plan. In former years there had been a corps 
of institute directors who consulted together and laid out the pro- 
gramme in general terms. This programme was sometimes quite 
elaborate, giving heads and subheads of discussion. Teachers were 
then called upon, either by previous notice or when the gathering- 
occurred, to discuss phases of the question in the light of the sug- 
gestions made in the programme, the 'director, in the meanwhile, 
keeping the discussion well in hand. 

This year our means did not permit this organization. Superin- 
tendents of adjacent districts were chosen as institute leaders. The 
department placed the organization wholly in the hands of the local 
superintendents. Four topics, being all of them of practical interest 
in our school work, such as the duty of teacher regarding enrollment 
and attendance, were suggested but not prescribed. Outlines of dis- 
cussion were furnished with each of the subjects. In addition, ar- 
rangements were made with the Medical Association of Porto Rico 
to have at each one of the institutes a popular presentation of the 
subject of " Uncinariasis." There was to be the usual evening- 
session, with speeches by the officials of the department. No money 
being available for other speakers, we appealed to public spirit and 
were fortunate in securing the services of Dr. Jose C. Barbosa, Dr. 
Rafael del Valle, Mr. Jose Gordils, and Prof. Francisco Zuazaga, of 
the Insular Normal School, whose helpful assistance is acknowledged 
with profound gratitude. 

In the daily sessions the programme outlined by the department 
was generally followed, perhaps too generally. Some superintendents 
varied it by substituting topics of more immediate local interest, 
and some by practice classes. The work of these sessions was, in gen- 
eral, effective, though it did not in every case give rise to the desired 
discussion. It lacked something of the harmony of the work of 
former years. Some of the papers presented were excellent, too 
excellent sometimes, as they were so exhaustive as to choke off 
discussion. 

In other cases discussion was desultory and ineffective. Yet there 
is little doubt that the balance of the good over poor features was 
considerable. It may be that impressions gained at such institutes 
are not permanent. How could this be expected? Yet the stimulus 
is not wholly lost. Opinions differ, and probably always will differ, 
on the question how far the director should instruct the teachers 
directly, and how far they should instruct each other by the recital 
of the facts of their daily experience and a statement of their efforts 
to overcome the problems which beset them. Their views may be 
immature, their vision limited, but when they are truly expressed 
and honestly discussed they make more impression upon their fellow- 
teachers than would pearls of wisdom falling from the lips of riper 
experience. 

The public meetings held were remarkably successful. In nearly 
all the towns large audiences gathered to hear the addresses, and a 
warm welcome was given the visiting speakers. 



144 PORTO RICO. 



THE ENGLISH LANGUAGE. 



A perusal of the superintendents' reports reveals a widespread 
interest in the English language and a desire in most parts of the 
island to have the schools conducted in English wherever possible. 

In accordance with this desire, the allotment of schools for the 
coming year includes 113 schools to be taught in the English lan- 
guage by Porto Rican teachers, as compared with 44 schools in the 
preceding year. Examinations to test the ability of the Porto Rican 
teachers to give instruction in the English language were held 
throughout the island by a special board of examiners and the num- 
ber of persons who qualified in such examinations was 93, making 
with the 55 teachers who qualified in the preceding year a total of 
148 who are certified as competent to teach in the English language. 
This number is somewhat in excess of the schools granted. The 
introduction of English as the medium of instruction can be made 
by no haphazard* methods; it must come gradualty. One of the 
effective means of preparing for its introduction has been the method 
followed in several districts of having the Porto Rican teachers give 
a part of their work in the English language. 

In the month of December, 1905, the use of English in the grades 
was ascertained to be as follows: 

Grades taught wholly in English by American teachers 33 

Grades taught partially in English by American teachers ___ 34 

Grades taught wholly in English by Porto Rican teachers 36 

Grades taught partially in English by Porto Rican teachers 51 

Whole number of grades taught wholly or partially in English language— 154 

This inquiry was made before the meeting of the superintendents' 
conference at Arecibo. The results of the work were thoroughly 
discussed at the conference and a number of the superintendents here- 
tofore skeptical of the possibilities of such an organization of their 
schools went back to their districts and introduced to a greater or 
less extent the use of the English as a medium of instruction. 

It is gratifying to know that wherever introduced, instruction in 
Englishes, after a brief period, proven popular both with pupils, 
teachers, and the community at large. The rate of progress of the 
pupils has not been diminished. It appears that the attention which 
the pupil is forced to give to the language is carried over to the sub- 
ject-matter of instruction and the lesson taught is more accurately 
learned. The success of the system has greatly encouraged the 
school authorities and the time seems not far distant when the 
graded schools throughout the island will be taught in the English 
language. It is further to be noted that this change is gradually 
working itself out without any increase in the number of English 
teachers. 

COURSE OF STUDY. 

In my previous report attention was called to the inadequacies of 
the existing course of study for the graded schools of the island. The 
plan was prepared some years ago, and was based largely upon the 
experience of American schools. Local needs had not yet made them- 
selves sufficiently felt to exercise much influence in shaping the course. 
To-day these needs are better, if not wholly, understood. 

Moreover, the old course had become antiquated through the fact 
that it was based upon the supposition that the instruction in the 



POETO EICO. 145 

schools was given in Spanish, with the" teaching* of English as a 
special study only. It has already been noted how this condition is 
gradually passing away, and it can readily be inferred that the 
former course of study was thereby rendered useless. 

But the very fact which superseded the older course of study 
rendered the preparation of a new one difficult. The work to be 
covered in the eight grades is the same whatever the language 
employed in the schools, but it will be differently distributed accord- 
ing as English or Spanish is the predominant medium of instruction. 
As in our several districts we have all possible combinations in this 
respect, the preparation of a new course of study immediately appli- 
cable everywhere was out of the question. It was necessary to seek 
out the most frequent basis toward which the organization is tending 
in the several districts. Accordingly it was assumed that instruction 
in the first grade should be given in Spanish and from the second 
grade upward in English. 

The course of study prepared can, therefore, go into effect in some 
districts at once. In others there must be a gradual adaptation to it. 
It is a model, rather than a law, to be rigorously enforced. The for- 
mer course of study was little more than a list of headings covered in 
half a dozen printed pages. The present course is a pamphlet of 100 
pages, with a comparatively full pedagogical guide to the teachers in 
each of the subjects treated. 

SCHOOL DECORATIONS. 

The desire for decorating the schoolhouses represents a laudable 
tendency on the part of teachers and school boards. The base walls 
of the buildings are rendered more attractive by pictorial decoration, 
and the interest of children in their school work is heightened. 
Unfortunately, the material available for such decoration within 
reach of the teachers has not always been of the highest aesthetic 
order. It has consisted largely of the posters of patent medicine 
and brewery concerns, which usually bear invitations to use the medi- 
cines or beverages produced by them. During the present jestr the 
department has sought to raise the level of decoration. A large num- 
ber of pictures in colors issued by the firms supplying pictorial sup- 
plements for the Sunday papers was purchased and issued to the 
rural schools of the island. 

The larger railroad companies of the United States were requested 
to donate copies of the large pictures used by them for advertising- 
purposes in their central ticket offices. There was a liberal response, 
and acknowledgment is gratefully made to the railroad companies. 
About 125 pictures of large size, including a number of very excel- 
lent photographs, were distributed to the several districts. Most of 
them have been framed and placed in the graded schools. 

The schools erected throughout the island under my predecessors 
bear the names of distinguished Americans. Some time ago the 
school children of Lajas, where the school is named for Oliver 
Hazard Perry, wrote to the department requesting a picture of Com- 
modore Perry for the decoration of their school. It was found that 
no picture for such purpose Avas available in the market, and a 
photographic reproduction and enlargement of an excellent print in 
the Library of Congress was secured, framed in the industrial school 
S. Doc. 135, 59—2 10 



146 POKTO KICO. 

at Ponce, and presented to the school at Lajas. The desire of the 
children of Lajas to know something of the man for whom their 
school was named has suggested to the department the propriety of 
placing in all of its schools pictures of the persons for whom they 
were named. The collection of prints in the Library of Congress 
has been drawn upon for this purpose, and photographic enlarge- 
ments of the distinguished persons whose names have been placed 
upon the schoolhouses have been secured and will, as soon as they can 
be framed, be presented to the schools. 

By the several measures already noted it is hoped that an intelli- 
gent interest in school decoration will be awakened. 

THE SCHOOLS. 

The school system of Porto Rico comprises the common schools, 
agricultural schools, night schools, industrial schools, high schools, 
and the normal schools. A group of these schools, consisting of the 
normal and practice school and an agricultural school, are under 
a somewhat distinct administration, that of the trustees of the Uni- 
versity of Porto Rico, but they are included in this report. 

The common schools are divided into two classes, graded and rural 
schools. The former are located in the towns, and in them instruc- 
tion is given from the first to the eighth grade, though in some of 
the smaller towns of the island the upper grades are not represented. 
In the larger centers of population the different grades are quite 
distinctly separated, being under the care of different teachers. 
When the number of pupils is less numerous, especially in the upper 
grades, the presence of two or more grades in the same class room 
and with one teacher is not infrequent. 

In the rural schools one teacher is in charge of all the pupils en- 
rolled, and gives instruction to two or three grades. In a few cases, 
where there is sufficient population to support two schools in close 
proximity, there may be a division of the pupils which places those 
of the first grade in one school and those of the second and third 
grades in the other. Such cases are, however, rare. 

The different types of schools represented in the system are quite 
distinct, and each will be treated separately. 

THE COMMON SCHOOLS. 
SCHOOLS AND TEACHERS. 

In rural districts where the schoolhouse consists of a single room, 
and where a group of children are taught by a single teacher, the 
terms school and class room are synonymous. Common speech does 
not make the terms identical in cities, where, as a rule, school and 
schoolhouse mean the same thing. But for statistical purposes, fol- 
lowing the practice in vogue in many of the States, class room and 
school must be deemed equivalent terms. Thus, a single school build- 
ing containing six class rooms in charge of as many teachers must 
be considered as six schools. A school may, therefore, be defined as 
a group of pupils in the care of a teacher. When a teacher has two 
distinct groups under his charge, one in the morning and another in 
the afternoon, each group figures as a distinct school. This definition 



PORTO RICO. 147 

is, of course, applicable only to the common schools, and can not be 
applied to institutions of secondary instruction which have a distinct 
plan of organization. 

In any school system the number of schools open during the year 
is a relatively stable number, but not one which is absolutely un- 
changing. A temporary closure of a school on account of the sick- 
ness of a teacher may occur for a week or longer period. In cities 
the number of schools is more constant than in the rural districts. 
If a teacher is temporarily sick, substitutes are often available. If 
a teacher dies or resigns it is not difficult to fill the vacancy as there 
is a large supply of available graded teachers. In rural districts 
changes in the number of schools are more frequent. If a teacher 
falls sick it is not possible to secure a temporary substitute. If a 
teacher dies or resigns it is often difficult to obtain anyone to fill 
his place, and the school is permanently closed. Again, there are 
changes in location of the schools. This does not really change the 
number of schools at any one time, but does increase the number of 
schools open at any time during the year. Another element of varia- 
tion is the introduction of half-time schools, which gives us two 
schools where before there was only one. 

The school year 1905-6 began with 494 graded schools open in the 
first week. In the second week 506 schools were in operation. The 
number was well maintained, suffering a diminution only in the last 
weeks of December, when the schools of Guayama were closed by the 
health authorities. The number even increased, reaching 518 on 
December 1, 1905, and 526 in May. This increase was almost exclu- 
sively due to the introduction of the half-time system, or to assigning 
English teachers, previously employed as special teachers, to teach 
grades, and did not therefore require any increase in the number of 
teachers employed. 

The school year opened with 466 rural schools, a number which 
promptly increased to 474 in the second week of the term. There 
was from that time forward a gradual increase in the numbe*r of 
schools opened, which reached its highest point, 516, in May, 1906. 
As stated earlier in the report, there is a deplorable lack of rural 
teachers. Some of the rural teachers licensed in January were imme- 
diately employed, and thus the number of schools grew from this 
cause. But much more important in its effects was the campaign for 
increased school attendance, which resulted in a number of cases in 
giving two schools to the same teacher. In December, 1905, there 
were only four rural teachers with double schools, but at the end of 
the year there were 26, of whom 16 were in the district of Bayamon. 

At the close of the school year figures were collected in regard to 
promotions in the schools, which incidentally threw some light upon 
the organization of the schools'. The number of schools reported is 
not quite identical with that reported in the table already alluded to 
as open in the final week, since the phrase " existing at the end of 
the year " allows a more liberal interpretation, as it includes all 
schools which practically terminated the year's work, though some, 
like the eighth grades in .San Juan and Ponce, had been closed for 
three weeks, and though some might not have been in operation in 
the final week. 

It appears from these figures that there were 527 graded schools in 
charge of 503 teachers. The number of schools exceeded the number 



148 



PORTO RICO. 



of teachers in charge in the districts of Yauco, San German, Maya- 
guez, Aguadilla, San Sebastian, Toa Alta, and Bayamon. In the last 
named, 26 graded schools were conducted by 19 teachers. But in 
addition to the teachers in charge of grades the graded school system 
requires the services of other teachers. These are in the United 
States the principals and the special teachers of music, drawing, 
and the like. In Porto Kico there are a few of the principal teach-, 
ers who devote their time exclusively to the work of supervision, 
but by far the greater part of them also teach grades. Special teach- 
ers of music and drawing are found only in San Juan, Ponce, and 
Mayaguez, but special teachers of English are frequent in the island. 
The whole number of teachers employed but not directly responsible 
for definite schools was 60. 

In the rural schools there were 497 teachers employed, who were 
in charge of 523 schools. The number of rural schools exceeded the 
number of teachers in the districts of Yauco, San German, San Sebas- 
tian, and Bayamon. In the district of Bayamon 44 schools were con- 
ducted by 28 teachers. m 

This inquiry also furnished data upon the organization of the 
graded schools. It shows that of the 527 graded schools at the end 
of the 3 r ear, 384 consisted of a single grade, 112 of two grades, 25 
of three grades, and 6 of four grades. Through these combinations 
of grades in the same school, 527 schools accommodated as many as 
707 grades. It is a question among educators whether the presence 
of two groups in the same schoolroom really militates against the 
effectiveness of the teaching. It can not positively be affirmed that 
when there are only two grades in the school the instruction suffers, 
but where there are as many as three or four grades there can be 
little doubt that the attention of the teacher is too much divided for 
him to do the best work. Fortunately these cases are comparatively 
rare, and occur only where, by reason of the limited number of pupils, 
no other organization is possible. 

We may revert to the number of schools once more to compare 
the relative number of graded and rural schools. In former years this 
number was not stated in the reports of this office for a definite point 
of time. The available figures are those for the whole number of 
schools open at any time during the year, a mode of statement which, 
in comparison with the average number of schools, tends to exagger- 
ate the number of rural schools rather than the graded schools. 
Despite disparity in the mode of statement the following summary is 
not without interest : 





Graded. 


Rural. 


Common. 


Number of schools: 

1901-2 


381 

427 
497 
494 
532 
503 
527 


490 
580 
563 
554 
542 
497 
523 


871 


1902-3 


1,007 


1903-4 


1,063 


1904-5 


1,048 


1905-6 ... 


1,074 




1,000 




1,050 







Before 1905-6 the number of teachers in charge of schools was sub- 
stantially the same as the number of schools, since half-time schools 
were sporadic only. It will be seen that the graded schools are now 



■ POETO KICO. 149 

considerably more numerous than five years ago. Apart from the - 
increase due to double schools, above set forth, there is a considerable 
advance in number. This indicates a better provision for the needs 
of the town population, though not to the full extent of the figures 
quoted. In the past it was not infrequent to establish rural schools 
for first-grade children in the outskirts of towns, and quite a number 
of these schools have subsequently been converted into graded schools. 
As to the rural schools the figures are inconclusive. It would 
appear at first blush that this consequence scarcely followed; from 
the fact that in the year 1902-3 the whole number of rural schools 
was 580 and in 1905-6 was 542. But there is much reason to believe 
that the whole number of schools was relatively larger in proportion 
to the average number in the earlier period. Changes were much 
more frequent. Rules of the department at present discourage 
changes. It seems, however, not unlikely that the number of rural 
schools may have somewhat diminished. This is not quite equiva- 
lent to saying that schools in the rural regions have decreased, since 
it is believed that the location of rural schools within the urban limits 
was more frequent in former years than of late. It is, however, 
sufficiently clear that there has been no substantial advance in the 
schools in the rural regions. In view of the great needs of the rural 
districts, which were set forth at length in the report of 1904-5, this 
is greatly to be deplored. All efforts to increase the number of 
schools in the rural regions have been defeated by the scarcity of rural 
teachers. 

ENROLLMENT. 

The next question asked in regard to any school or system of 
schools is the number of its pupils. Simple as the question may 
appear, there are several ways of answering it. We ma}^ receive in 
reply (a) the whole number of pupils enrolled during the year, (b) 
the number appearing on the rolls at a given time, or (c) the aver- 
age number on the rolls during the year. * The first reply is the most 
frequent, for the number is larger than the others and the natural 
desire to make a good showing inclines toward this figure. The en- 
rollment of a single school is easily ascertained. It represents the 
whole number of different pupils who have been in the school for any 
time whatever during the school year. It includes necessarily quite 
a number whose connection with the school has been brief, who for 
one reason or another have dropped from its ranks or who have 
entered them late in the year. 

But if the total enrollment of a single school is readily ascertained, 
it is by no means equally easy to obtain the total enrollment of a sys- 
tem of schools. Pupils shift from one town to another and from 
one school to another. Count may be taken of the reenrollments by 
various methods, but there is reason to believe that almost any system 
devised has weak points and sources of error. It is probable that 
every statement of total enrollment contains duplications to a greater 
or less extent. 

According to the records of the department, there were in 1906 
60,781 enrollments, excluding 6,444 cases of ascertained reenrollments. 
Although an attempt was made to clearly separate the reenrollments 
it is much to be doubted whether the ascertained cases comprise all 
the actual cases. 



150 PORTO RICO. 

To what extent does total enrollment measure the efficiency of the 
school system ? No answer to the question can be given until we know 
the relation existing between the total enrollment and the average 
enrollment and understand exactly how the latter is computed. Just 
as the total enrollment represents the whole number of children 
affected by the school system, irrespective of the length of time which 
they may have been under its influence, so the average enrollment is 
an expression of the number of children on the roll on the supposition 
that each child remains for the entire period. The more closely the 
two figures approach each other the more favorable must be the condi- 
tions of school work. If the figures tend to converge it indicates sta- 
bility of personnel among the children of the schools— that most of 
them actually belong to the schools for the entire period, and that few 
are there for a short period. If the figures are far apart it means a 
relative prominence of those children whose relation to the school is 
fitful and irregular. 

The figures for Porto Rico in the school year 1906 are as follows : 





Graded. 


Rural. 


Common. 




28,116 
22, 708 


32, 665 
23,946 


69, 781 




46,754 







The divergence between the total enrollment and the average enroll- 
ment is considerable. It will be noted that this divergence depends 
in part at least upon the accuracy with which the average enrollment 
is ascertained. One of the primary purposes of ascertaining average 
enrollment is to compare it with the attendance, since one of the pri- 
mary tests of a school system is the regularity of attendance. This 
criterion has determined the policy of this department, namely, to 
secure as faithful and accurate a statement of attendance as possible. 
There are two factors concerned, the pupils present and those belong- 
ing to the school. The first factor is positive and admits of no doubt. 
It has been rigidly adhered to. An illustration maj^ make this clear. 
In a certain town 10 schools, with an enrollment of 500 pupils and a 
daily attendance generally of about 460, are closed by health authorities 
for a period of two weeks. In the statistics of this department these 
schools entirely disappear for two weeks. In the practice of other 
school authorities the schools continue with the same enrollment 
as before and with an attendance of 100 per cent. The latter system 
maintains a higher relation between average enrollment and total 
enrollment. 

Again, a further question arises as to the pupils Avho really belong 
to the school when it is in session. Does a child who appeared on 
the roll a month ago, who has since dropped out of sight, really 
belong to the school ? Does a child who has been away from school 
some time and is known to be confined to his bed by a serious sickness 
really belong to the school for the purposes of computing attendance? 
In the opinion of this department both questions should be answered 
in the negative, and hence the necessity of keeping the enrollment 
record clear of the names of pupils whose connection with the school 
is nominal only and not real and effective. Hence, under the rules 
of the department, a child absent for more than five days for any 
cause whatever is omitted from the record of the enrollment. 



POETO RICO. 151 

Our calculation of enrollment for each day, therefore, excludes all 
children who can not reasonably be expected to be present. The cal- 
culation of enrollment for the week excludes all schools not actually 
in operation. If a school is in operation, though closed for a day or 
two, it is computed as if in full operation, so that the enrollment of 
the week represents the sum of the weekly averages of all schools 
actually open during all or part of the week. 

There were, as already stated, 60,781 pupils entered upon the books 
of the various schools during the year. In addition there were 
6,444 pupils entered upon the books of at least two schools, making 
an aggregate of original entries of 67,225 pupils. Our records show 
that beginning with nothing there were during the course of the year 
78,012 pupils added, not to the lists, but to the daily enrollment. 
This indicates that the five-day suspension rule in the course of the 
year affected 10,787 pupils, the difference between the aggregates 
already given. It is manifest that had these pupils not been dropped 
under the five-day rule and later reinstated the enrollment week by 
week and the average for the year would have been recorded as 
considerably higher than it has been. Equally obvious is it that 
the number of recorded absences would have been proportionally 
greater and the percentage of attendance in the schools proportion- 
ally lower. 

The divergence between the average enrollment and the total en- 
rollment being sufficiently explained, it remains for us to consider 
the relation between the weekly enrollment and the average. In all 
schools there is a loss of pupils during the year, and we should on 
this account expect the initial number of pupils to gradually decline. 
This would be true of a high school, which normally has no acces- 
sions during the year. It would, in a large measure, be true of the 
upper grades of the graded school. But in the graded schools as a 
whole the tendency is, in part, counteracted by the admission of pu- 
pils to the first grade. Thus, in the graded schools of Porto Rico 
we find in the first week of the term 21,426 pupils enrolled. In the 
first five weeks of the term the number had increased to 23,509, the 
maximum for the year. Until the week ending December 1 it main- 
tained itself above the 23,000 mark. After that the figure lies gen- 
erally between 22,000 and 23,000, falling below the former only twice 
in the last weeks of the first and the third term, and rising above the 
latter only twice in the month of March. 

Somewhat different is the course of enrollment in the rural schools. 
Here a much larger proportion of the pupils are of the first grade. 
The year began with 15,942 pupils, and in the fifth week the number 
had reached 22,154. But after that it continued to rise, reaching 
23,000 November 17, 24,000 January 19, and 25,000 March 2. The 
maximum attained was May' 4, when the figures reached 25,909, de- 
clining slightly subsequently, as the year terminated with 24,524. 

From these figures it is clear that the number of pupils at any 
time later than five weeks after the opening of school is a pretty fair 
indication of the average number of pupils belonging to the schools. 
It was with this in view that the date of March 2, 1906, was selected 
as appropriate for a census of the school children, the results of 
which are discussed later. , 

The number of children enrolled in the schools may be brought 
into connection with the number of schools, and the figure familiar 



152 PORTO EICO. 

in school statistics of the enrollment per school may be obtained. In 
any given school an increase of enrollment is usually hailed with 
satisfaction as an evidence that the usefulness of the school is increas- 
ing, and within certain limits an increase in enrollment per school 
may be regarded in like manner. There are, however, certain defi- 
nite limits to the enrollment per school. The first is, that a teacher 
can not effectively teach more than a certain number of pupils. 
How large this number may be will ever be a matter of dispute. In 
his last report (1905) the superintendent of schools of New York 
City declares that a teacher can not instruct effectively more than 
40 pupils. It may well be that for upper grades this is the largest 
number consistent with good results, though in the lower grades the 
number might be smaller. Thus, in Washington, D. C. (1904), 
there are 48.5 pupils per teacher in the first grade and 40.3 in the 
eighth. In the city of Omaha, Nebr., the attendance per teacher in 
1900 was 36, indicating an enrollment of a little more than 40. In 
1904 in the cities Of the United States having 8,000 inhabitants the 
attendance per teacher was 34.7, indicating an enrollment of about 
40. While definite rules upon this point can not be fixed, certain it is 
that in the lower grades a teacher should never be expected to teach 
in excess of 50 pupils at any one time. 

With a good average attendance the enrollment should not exceed 
at the most 55. This is the theoretical limit allowing for an average 
of 5 absences daily. There is again a practical limit in the seating 
capacity of schoolrooms. Rooms which will comfortably seat 50 
children, and on some days crowd in three or four more, are not fre- 
quent. Whether in any given district the enrollment per school is 
satisfactory could only be ascertained by a comparison between the 
potential enrollment and the actual enrollment, with a full knowledge 
of local conditions. If our school buildings in Porto Rico had been 
erected for the purpose we might suppose, as we generally can sup- 
pose in the United States, that the seating capacity has a definite 
relation to the number of children who should make up a school. 
But here we have many ill-adapted buildings, and unfortunately 
data relating t© seating capacity has not been collected. It is, on 
the contrary, certain that in many schools actual enrollment can not 
be forced up to the theoretical limit without great hardship to the 
pupils. Again, local conditions must be thoroughly studied, for the 
theoretical limit is oftentimes unduly removed from the probable 
limit. For a given group of schools which have not reached their 
potential enrollment an increase of enrollment per school is a sign 
of progress. But if the group be considerably enlarged and schools 
are pushed out into regions of sparse population the necessarily low 
enrollment in the new schools may cover up a real increase in the 
older schools, and the general result be a diminution in the enroll- 
ment per school. 

The average daily enrollment of pupils in the graded schools of 
the island was 44.01 per school. The range of variation was from 
35.82 in San Juan to 57.31 in Naguabo. In four towns of the island 
it was less than 40, and in six towns more than 50. The low enroll- 
ment in San Juan is due in large measure to physical conditions. 
None of the schools are in specially constructed school buildings. 
The rented buildings have in them frequently small rooms, which 
must be utilized. Again, the upper grades are relatively more 



POETO BICO. 



153 



numerous in San Juan than in the other localities, and in them a 
smaller enrollment is desirable than in the lower grades. 

The enrollment per school is also affected in some measure by 
the half-time system, since such double schools are rarely so large 
as two single schools. Where the double schools prevail the enroll- 
ment per school is not so significant as a measure of the utilization 
of school facilities as the enrollment per teacher. This can be 
shown by applying the average enrollment to the schools open 
at the end of the year. In those districts where the number of schools 
and of teachers in charge is identical, the enrollment per school and 
per teacher are the same. In the other districts the results are as 
follows : 

Enrollment in graded schools. 



Yauco 

San German.. 

M lyaguez 

Aguadilla . 

San Sebastian 

Toa Alta 

imon 

Island . . 



Per 

school. 



51.98 
47.63 
43.65 
40.17 
51.67 
45.77 
39.63 



44.01 



Per 
teacher. 



56. 93 
53.12 
47.50 
49.30 
55.64 
50.86 
54.23 



46.11 



On the basis of schools Yauco stands at the head of the list, closely 
followed by San Sebastian. These districts retain their relative rank 
on the basis of teachers. Other districts take much higher rank on 
the basis of teachers than on that of schools, notably Bay anion. 

Our tables show for the graded schools a slight diminution from 
45.04 in the first term to 43.14 in the third term, which agrees with 
what has already been said with respect to the fluctuation in the 
enrollment. 

Turning now to the rural schools, we find that the average en- 
rollment per school was 48.42, or in excess of the graded schools. 
This is probably due not so much to the greater size of the class 
rooms as to the fact that the great majority of pupils are in the first 
grade and are more readily recruited than the pupils of the graded 
schools. The range of variation by towns was from a minimum of 
39.70 in Maricao, to 57.03 in Fajardo; and by districts, from 41.32 in 
Bayamon to 55.09 in Fajardo. But as certain districts have an ex- 
cess of schools over teachers it is important in estimating the work 
of such districts to find the number of the enrollment per teacher, as 
has already been done for the graded schools. The results for the 
rural schools are as follows: 

Enrollment, rural schools. 





Per 
school. 


Per 
teacher. 


Yauco 


54.24 
49.52 
50. 69 
41.32 


62.38 




51.90 




60.20 




64.93 








48.42 


50.95 







154 



PORTO RICO. 



It will be noted that the calculation of enrollment per teacher 
places Bayamon at the head instead of the foot of the list, and 
raises all the districts considerably above the average. 

Our tables show further an increase of the average enrollment in 
the second term and some falling off in the third, though the first 
term only is below the average. 

Finally, our tables show, in regard to the enrollment of the 
graded schools at the end of the year, the number of pupils receiving 
instruction in rooms of one grade only, and of mixed grades. In 
a total of 22,273 pupils, 16,407 are in rooms where two grades are 
taught, 964 where three grades are taught, and as many as 266 where 
four grades are taught in the same room. All of the districts have 
enrollments of two grades in some of their schools, and as many as 
twelve have enrollments of three grades. 



ATTENDANCE. 



The attendance of the pupils in the schools is one of the most ex- 
pressive measures of the efficiency of the school system. It is the 
factor of primary importance in any school system where the records 
of enrollment are loosely kept. It is the only means of comparing 
different places or different periods when there is no record of the 
average enrollment. With the system adopted in the past year in our 
schools, it is to be expected that the attendance in the schools will 
follow the same general tendencies as the enrollment. There may 
be variations in the intensity of attendance at different times or dif- 
ferent districts, but the general percentage is so high that the oppor- 
tunity for variation is slight. The method of calculating the weekly 
average of attendance and the derived averages for terms and for 
the year is identical with that already described for the enrollment. 
The results for the present year are as follows : 

Average attendance. 



' 


Graded 
schools. 


Rural 
schools. 




20,746.76 
20,819.01 
20,545.03 


19,188.26 




21,634.24 




22,475.14 








20,703.60 


21,099.20 







As might be anticipated from data already studied in regard to 
enrollment, the figures for graded schools show practical stability and 
those for the rural schools an advance as the year progressed. 

In the report of last year an attempt was made to show the exten- 
sion of the school system by a reference to the average number of 
pupils taught each day or the daily average of attendance. The 
figures showed a satisfactory increase from year to year. But they 
were not calculated on the same basis as in the present year, and 
unfortunately the basis of calculation was false. This inaccuracy 
consisted in taking the whole number of schools open during the 
year and multiplying this number by the average attendance per 
school. By such methods the schools which were in existence for a 
period briefer than the whole year were counted as if in operation 



POKTO EICO. 



155 



for the entire year. This defect would not invalidate comparisons 
made between the different years as to the rate of progress, but it 
would make the return for each year somewhat higher than the real 
facts in the case warranted. Accurate data for the calculation of 
the daily average attendance in the schools were not available 
before the present year. How far these figures of former reports 
exceed those which would have resulted from the use of the methods 
employed in the present year can, however, be estimated. Calcu- 
lations made on the basis of the old method give for the year 
1905-6 a figure of 44,540.54 for the average attendance, which is 
higher than the correct figure, 41,802, based upon the improved 
methods of this report. Using the proportions thus obtained to esti- 
mate AYhat would have been the number of pupils attending in pre- 
vious years, we arrive at the following results: 

Average attendance. 



School year. 


By method 
of former 
reports. 


By method 
of this 
report. 


1901-2 








« 31, 488. 63 
134,271.71 
a 39, 928. 35 
142,989.27 
"■ 44, 540. 54 


6 29, 552. 08 
b 32, 164. 00 
6 37,472.76 
6 40,345.43 
6 41,802.40 














"As printed. 




6 As estimated. 





It will be seen that the progress of the schools has been constant, 
though for reasons above set forth the more accurate statement of the 
progress is found in the figures of the second column. 

The figures for the attendance per school give rise to considerations 
similar to those already discussed in connection with the enrollment 
per school. .But comparing the latter with the former we obtain one 
ot the most significant figures respecting schools, the percentage of 
attendance, which measures the intensity of application of the pupils 
and in a way also the seriousness with which the parents regard the 
school duties of their children. 

In the graded schools of the island the percentage of attendance 
for the year was 91.33, a result which must be considered in the 
highest degree satisfactory. It indicates a high degree of regularity 
m attendance and shows that the children do not absent themselves 
irorn school for trivial causes. 

Moreover, the high average of attendance is well maintained in the 
different towns and districts of the island. The most favorable show- 
ing is found m the town of Sabana Grande, with 95.77 per cent and 
the least favorable m Las Marias, with 81.57 per cent. By districts 
the best showing is made by Yauco, comprising the towns* of Yauco 
and fcabana Grande, with 94.71 per cent, while the smallest district 
average 8 <. 05 per cent, is found in Caguas, comprising Caguas 
Aguas Buenas, and San Lorenzo. It may be further noted that the 
high percentage of attendance has been well maintained throughout 
the year, the percentages by terms being 90.94, 91.56, and 91.42 for the 
first, second, and third terms, respectively. 

It would be interesting to compare these results with those for the 
cities of the United States. For this purpose I have drawn a few 



156 



PORTO RICO. 



figures from the reports available in this office, which are herewith 
submitted : 



City. 



Dayton, Ohio.. 
Syracuse, N. Y, 
Harrisburg, Pa 
Portiand, Oreg 
Bradford, Pa.. 



Date. 



1900 
1900 
1903 
1904 
1904 



Percent- 
age of 
attend- 



92.5 
94.8 
89.0 
95.9 
96.0 



City. 



Savannah, Ga. .. 

Dallas, Tex 

Worcester, Mass. 

Chicago, 111 

Springfield, Mass 



Date. 



1904 
1904 
1904 
1904 
1901 



Percent- 
age of 

attend- 
ance. 



88.0 
92.4 
90.6 
93.4 
92.0 



It is certainly gratifying to note that these cities with their old- 
established systems get results about the same as in the island of 
Porto Rico and that but few exceed the record of Sabana Grande 
(95.77) or Manati (95.01). 

Equally encouraging are the figures for the rural schools, where, 
for obvious reasons, the same high standards can not be expected as 
in the graded schools. Here, in spite of adverse circumstances, the 
very excellent average of 88.17 per cent was attained in the rural 
schools of the island. The maximum attendance was found in the 
municipality of Sabana Grande (94.51 per cent) and the minimum 
in San Lorenzo (83.23 per cent). The best district was that of Yauco 
(93.95) and the poorest that of Caguas (84.48), these districts includ- 
ing the maximum and minimum municipalities, respectively. Fur- 
thermore, it may be noted that there was an improvement during the 
year, an attendance of 87.81 per cent in the first term being followed 
by one of 87.98 per cent in the second term and 88.92 per cent in the 
third term. 

During the past year especial attention was given both in the office 
of the department and b}^ the superintendents of schools to matters of 
enrollment and attendance. It was felt that by increasing the enroll- 
ment and insuring the regularity of attendance not only could the 
area of the school work be extended but its effectiveness increased. 
In both directions signal results have been obtained, which should be 
a rich reward for the efforts made. It is, however, clear that in the 
great majority of cases the practical limit of enrollment has been 
reached. A few schools lag considerably behind the average, and 
these should receive attention. But so far as present schools are con- 
cerned future efforts can not look to any great advance in enroll- 
ment or attendance. But the good results already attained should be 
maintained by the continued exertions of the department, the super- 
intendents, and the teachers. 



SEX OF PUPILS. 



We come now to the final and most important element in our con- 
sideration of the common schools — the pupils. As already stated, a 
more or less elaborate census of the pupils was taken on March 2, 
comprising all the pupils enrolled in the schools on that date. It 
concerned such important factors as the sex, age, grade, and length 
of time in school, and was so arranged that a number of the factors 
could be ascertained in combination. It is believed that the full and 



PORTO RICO. 



157 



accurate results obtained by this independent record fully justify 
the departure from the usual practice of basing the personal statis- 
tics of school children upon the annual registration. The totals with 
which they deal approach, as has already been noted, much closer to 
the average enrollment and thus give, it is believed, a truer picture 
of average conditions in the schoolroom. The enumeration of pupils 
made in March disclosed the following facts as to the sex of pupils, 
grouped according to grades : 



Table A. — Distribution of pupils enrolled March 2 


1906, 


by grades and sex. 


Grade. 


Graded schools. 


Rural schools. 


Common schools. 




Males. 


Females. 


Total. 


Males. Females. 


Total. 


Males. 


Females. 


Total. * 


First 


4,921 

2,695 

1,883 

1,283 

831 

409 

222 

160 


4,284 

2,450 

1,840 

1,065 

620 

333 

251 

165 


9,205 

5,145 

3,723 

2,348 

1,451 

742 

473 

325 


9,639 
3,731 
1,934 


6,554 
2,462 
1,027 






10,838 

4,912 

2,867 

1,065 

620 

333 

251 

165 




Second . 




25, 398 


Third 


2,961 


3,817 
1,283 
831 
409 
222 
160 


11,338 


Fourth 


6,684 

2,348 

1,451 

742 

473 

325 


Fifth 








Sixth 








Seventh 








Eighth 














Total 


12,404 


11,008 


23,412 


15, 304 


10,043 


25, 347 


27, 708 


21,051 






48, 759 



If we fix our attention upon the total it will be noted that in both 
the graded and rural schools the number of boys is greater than the 
number of girls, though the difference is greater in the rural schools. 
In respect to the superior number of boys, Porto Eico does not differ 
from the United States at large, though the excess of bovs is pro- 
portionally much greater here than there. In the aggregate this is 
due to the relative preponderance of the rural ungraded school in 
the Porto Riean system. 

If we examine the figures for American cities we find that there is 
on the whole a preponderance of girls in the public schools. Thus 
in 37 Massachusetts towns named in the latest report of the Com- 
missioner of Education at Washington (1903-4, vol. 1, p. 1332) there 
are only 12 in which the boys in the common schools exceed the 
girls in number. On the other hand, in the 45 towns in Porto Rico 
there are only 8 in which the girls are more numerous than the boys 
m the graded schools. 

In any community the number of boys of school age is likely to be 
slightly in excess of the girls of the same age, but the girls as" a rule 
stay longer in school. They are not forced out of school bv the neces- 
sity of gaming a livelihood, nor are they tempted from it bv oppor- 
tunities of earning money to the same extent as the bovs The 
average boy has a desire to " do things " and is not convinced that 
school offers him the opportunity. 

These tendencies are brought out more clearly by a consideration 
of the sex distribution in the different grades. No general report 
has been made upon the subject for the cities of the United 
btates and the individual reports of the different cities generally lack 
data upon this point. All the reports in my office have been examined 
and tables extracted for a number of cities. They can not be repro- 
duced here m detail, but they show that in the lower oracles bovs are 



158 



PORTO RICO. 



generally in the majority and in the upper grades the girls are more 
numerous. Thus we find : 



City. 



Year. 



Houston, Tex j 1904 

Washington, D. C 1904 

Kansas City, Mo I 1905 

Buffalo, N. Y j 1904 

New York City 1905 

1901 
1905 
1904 
1906 



Erie, Pa 

Cambridge, Mass 

Worcester, Mass 

Graded schools, Porto 
Rico. 



Excess of boys. 



Excess of girls. 



Up to third grade, inclusive i Fourth grade and upward. 

Up to second grade, inclusive Third grade and upward. 

do : Do. 

Up to sixth grade, inclusive ; Seventh grade and upward. 

Up to third grade, inclusive Fourth grade and upward. 

do ! Do. 

Up to fifth grade, inclusive ' Sixth grade and upward. 

Up to eighth grade, inclusive Ninth grade and upward. 

Up to sixth grade, inclusive ! Seventh grade and upward 



This explanation is further confirmed by. an examination of the age 
tables. It appears that in the graded schools of Porto Rico there are 
652 pupils of 16 years of age and upward, but of these 295 are males 
while 357 are females. In other words, when children have not com- 
pleted their common school education by the age of 16, girls are more 
apt to remain in school than boys. 

It has already been pointed out in our annual reports that the 
schools of Porto Rico could not reach all the persons for whom they 
are designed. If every child who should go to school had an oppor- 
tunity of doing so and, as in the United States, was forced to attend 
school, we should probably have a still more marked expression of 
the greater persistence of the girls in the schools. 

In the rural schools there is a marked preponderance of boys in all 
classes. In estimating this we should remember that the rural school 
contains only those grades in which boys normally preponderate, and 
that in view of the distance of the schoolhouses from the homes of the 
pupils there are special reasons for an excess of boys in the rural 
regions. So far as I have been able to secure data for rural schools 
separately in the States, and such data are rare, a like condition pre- 
vails there also. 



AGE OF PUPILS 



The next important consideration in regard to the pupils is their 
age. The following summary shows the age of each sex in the com- 
mon schools : 

Table B. — Distribution of pupils enrolled March 2, 1906, hy ages and sex. 



Graded schools. 



Males. Females. Total 



Rural schools. 



Males. Females. Total 



Common schools. 



Males. Females. Total. 



5 years 

6 years 

7 years 

8 years 

9 years 

10 years 

11 years ... 

12 years 

13 years 

14 years 

15 years 

16 years 

17 years 

18 years 

Over 18 years. 



93 

498 

1,080 

1,313 

l,o51 

1,925 

1,475 

1,850 

1,286 

793 

445 

168 

90 

33 

4 



93 

443 

923 

1,194 

1,233 

1,668 

1,355 

1,537 

1,060 

720 

425 

198 

94 

55 

10 



186 

941 

2,003 

.2,507 

2,584 

3,593 

2,830 

3,387 

2,346 

1,513 

870 

366 

184 

88 

14 



160 

704 

1,613 

2,081 

1,994 

2,371 

1,737 

2,127 

1,181 

757 

367 

138 

55 

19 





107 

533 

1,090 

1,355 

1,302 

1,698 

1,202 

1,354 

715 

407 

196 

55 

24 

5 





267 

1,237 

2,703 

3,436 

3,296 

4,069 

2,939 

3,481 

1,896 

1,164 

563 

193 

79 

24 





253 

1,202 

2,693 

3,394 

3,345 

4,296 

3,212 

3,977 

2,467 

1,550 

812 

306 

145 

52 

4 



Total 12,404 



11,008 



23,412 



15,304 



10,043 



25,347 



27,708 



200 

976 

2,013 

2,549 

2,535 

3,366 

2,557 

2,891 

1,775 

1,127 

621 

253 

118 

60 

10 



453 

2,178 

4,706 

5,943 

5,880 

7,662 

5,769 

6,868 

4,242 

2,677 

1,433 

559 

263 

112 

14 



21,051 



48,759 



POETO EICO. 159 

In a community with absolute compulsory education, rigorously 
enforced, we should expect the greatest number of children in the 
schools m the very earliest years of school life, since these are the 
classes most numerous in the population at large. Where there is 
greater liberty for parents in the matter of sending children to =chool 
due to inadequate facilities. Are should expect a larger number of 
belated entries. Moreover, where the school system has been recently 
introduced the beginners will be older than where it has been in long- 
continued existence. We should expect this in Porto Rico, where 
the system is still expanding. When the system grows older we 
shall probably find a better representation of the ages below ten year* 

Unfortunately there has been no study in detail in the United 
States of the ages of school children generally with which we could 
compare our conditions in Porto Rico. Xational and State reports 
do not give this detail, and it is only in a few cities that we find any 
statements. Availing myself of such material as is at my command 
m this office. I am able to compare the ages in the graded schools of 
Porto Rico with the ages in the graded schools of three cities in the 
United States. 



Table C- 


—Distri 


but ion o 


f pupils 


in town 


graded schools, 


by ages. 




Age. 


Porto Rico, 1906. 


Springfield. Mass., 
1901. 


Kansas City, 1905. 


Portland. 
1904 


Oreg., 




Number. 


Percent. 


Number. 


Percent. 


Number. Per cent. 


Number. Per cent. 


Under 6 years 


186 

941 

2,003 

2,507 

2,584 

3,593 

2,&»0 

3,3S7 

2,346 

1,513 

870 

366 

184 

88 

14 


0.8 

4.0 

8.6 

10.7 

11.0 

15.3 

12.1 

14.5 

10.0 

6.4 

3.7 

1.6 

.8 

.4 

.1 


456 


5.06 


1 




7 years 


858 9. 6 
1,003 11.2 
995 11. 1 
885 1 9.9 
8^3 10.0 
828 9.3 
S16 9.1 
768 | 8.6 
712 7.9 
428 4.8 
212 2.3 1 
83 .9 
20 .2 
4 .04 


3,593 13.1 
3,012 10.9 
3,119 11.3 
3,034 11.0 
3,110 11.3 
3,078 11.2 
3,020 11.0 
2,612 9.5 i 
1,855 6.8 ' 
753 2.73 1 
240 .9 ! 
48 ! .2 i 
14 .05 
6 .02 


953 
1,326 
1,296 i 
1,296 
1,^79 ; 
1,313 
1,247 , 
1,19b 
887 
466 
1S1 
48 
15 
15 


8.2 




11.4 


9 years 


11.2 


10 years 


11.2 


11 years 


11.9 


12 rears 


11. u 


13 years 


10.7 


14 years 

15 years 


10.3 
7.6 


16 years 


4.0 


17 years 


1.6 




.4 


Over 18 years 


.1 
.1 


Total 1 


23,412 

1 


100.0 


8,961 100.0 


27, 494 100. 

1 


11, 615 


100.0 



The table shows a maximum number of children at the age of 10 in 
Porto Rico at 7 m Springfield, at 6 in Kansas Citv, and at 10 in 
Portland, though m the latter case the percentage is only slightly 
higher than it is at the age of 7. Or again, looking at it in another 
way. the percentage of children under 10 is 35.1 in Porto Rico, but 
m Springfield it is 46.9. in Kansas City 16.2. and in Portland 12 
Conversely, a glance at the table shows a larger proportion of older 
pupils i in Porto Rico than in the cities with' which it is compared 
Equally interesting m this table is the more even distribution of 
sges among pupils in the American cities. 

We have considered the ages of the whole body of children in 
school. School life m the graded schools at least contemplate^ eio-ht 
years of the child's life, and the really significant facts as to the ales 
of the children m school can only be seen by a comparison of ages 
and grades. This is furnished in the following table- 



160 



PORTO RICO. 



TableJD. — Distribution of pupils enrolled March 2, 1906, by grades and ages. 

GRADED SCHOOLS. 



Age. 



5 years 

6 years 

7 years 

8 years 

9 years 

10 years 

11 years 

12 years 

13 years 

14 years 

15 years 

1(5 years 

17 years 

18 years 

Over 18 years. 

Total . . 



First 
grade. 



185 

921 

1,81(5 

1,830 

1,308 

1,472 

704 

585 

207 

91 

15 

3 

1 

1 



9,205 



Second 
grade. 



1 

19 

173 

572 

850 

1,103 



397 

102 

45 



1 



5,145 



Third 
grade. 



1 

14 

90 

309 

081 

759 

932 

581 

217 

108 

20 

4 

1 



Fourth 
grade. 



8 

54 

234 

348 

558 

550 

350 

174 

40 

10 

4 



3,723 2,348 



Fifth 
grade. 



1 

3 

34 

110 

305 

357 

357 

202 

55 

21 





1,451 



Sixth 
grade. 



7 

30 

79 

151 

180 

154 

78 

30 

15 



Sev- 
enth 
grade. 



2 
5 

34 
76 
100 
97 
89 
40 
20 
4 



Eighth 
grade. 



Total. 



180 

941 

2,003 

2,507 

2,5»4 

3,593 

2,830 

3,387 

2,346 

1,513 

8/0 

306 

184 

88 

14 



23,412 



RURAL SCHOOLS. 



First 
grade. 



Second 
grade. 



Third 
grade. 



Total. 



5 years 

6 years 

7 years 

8 years 

9 years 

10 years 

11 years 

12 years 

13 years 

14 years 

15 years : . 

10 years 

17 years 

18 years 

Over 18 years. 

Total... 



251 

1,220 

2,020 

3,034 

2,505 

2,588 

1,437 

1,450 

577 

290 

137 

42 

17 

7 



10 

11 

70 

302 

694 

1,222 

1,078 

1,342 

716 

406 

165 

72 

25 



1 

40 

97 

259 

424 

089 

003 

402 

201 

79 

37 

9 



267 

1,237 

2,703 

3,436 

3,296 

4,009 

2,939 

3,481 

1,896 

1,164 

563 

193 

79 

24 



10,193 



0,193 



2,901 



25,347 



Fixing our attention upon the graded schools we can not but be 
struck by the wide diversity in the age of children in the first grade. 
It is clear that, with the comparatively recent spread of the schools 
in Porto Rico, they are appealing to a large number of children of 
rather mature age who have hitherto been deprived of school oppor- 
tunities. It is a striking and certainly unusual thing that of the 9,205 
children in the first grade, as many as 903, or nearly 10 per cent, should 
be 12 years of age and upward. This great diversity of age, which 
is found likewise in the other grades, can not fail to present difficul- 
ties in the school work comparatively unfamiliar in the United 
States. Thus, quoting again the city of Springfield, Mass., we find 
that in 1901 it had 1,717 pupils in the first grade, but of those only 6 
were of 12 years and upward. To pursue the comparison a step fur- 
ther, we find in the Porto Rican graded schools as many as 3,079 
first-grade pupils of 10 years of age and upward, or 33.4 per cent, 
while in Springfield the corresponding number was only 15, or less 
than 1 per cent. There is no reason why the Porto Rican child should 
not begin his schooling as early as the American child, and of course 
many of them begin quite as soon; but there are evidently a large 
number who have begun much later. 



POETO EICO. 



161 



Examining the figures for the second and the subsequent grades, 
we see in each a wide diversity of age growing less as we advance. 
A short expression of this age diversity can be found by dividing 
the pupils of each grade into those of normal age and those above 
that age. To a certain extent the conception of a normal age must 
be conventional. In a discussion of this subject in the annual report 
of the Commissioner of Education of the United States the age of 8 is 
taken as normal for the first grade. It is considered that while chil- 
dren may begin at 6 years, at 8 every child should be in school. Adopt- 
ing the same plan for the graded schools of Porto Rico, we find the 
following figures : 

Table E. — Number of pupils enrolled March 2, 1906, in each grade who were above ■ 
normal age — Comparison with percentages for Boston, Mass. 

GRADED SCHOOLS. 



Grade. 


Normal 
age. 


Pupils of 
normal 
age and 
under. 


Pupils 

above 

normal 

age. 


Total 
pupils. 


Pupils 

above 

normal 

age. 


Pupils 

above 
normal 

age in 
Boston, 

Mass. 


First 


Years. 
8 
9 
10 
11 
12 
13 
14 
15 


4,758 
1,615 
1,095 
644 
453 
273 
217 
146 


4,447 

3,530 

2,628 

1,704 

998 

469 

256 

179 


9,205 

5,145 

3,723 

2,348 

1,451 

742 

473 

325 


Per cent. 
48.3 
68.6 
70.6 
72.5 
68.8 
63.2 
54.1 
55.1 


Per cent. 
22.2 


Second 


34.3 


Third 


36.8 


Fourth 


48.4 


Fifth 


50.7 


Sixth 


50.3 




49.6 


Eighth 


41.7 







RURAL SCHOOLS. 



First... 
Second . 
Third.. 



8 


7,l.->7 


9,056 


16,193 


55.9 


9 


1,159 


5,034 


6,193 


81.3 


10 


397 


2,564 


2,961 


86.6 



Figures for Boston from the report above named have been added for 
comparison. Looking at the Porto Eican figures, it appears that the 
proportion of children above the normal age is nearly one-half in the 
first grade. This comprises all children who originally entered after 
8 years of age, and doubtless includes a considerable number who 
entered at the age of 8 and who were not promoted at the end of their 
first year of schooling. In the second grade the proportion mounts 
to 68.6 per cent. In the increase we have, of course, no question of 
children entering school late, since all in the second grade must have 
passed through the first grade, but we have a clear expression of the 
effects of nonpromotion of the pupils. It will be observed that the 
proportion of pupils above average age increases to the fourth grade, 
each year adding its quota of nonpromoted children. But after the 
fourth grade the proportion diminishes. As the number of pupils 
diminishes, it is plain that the older pupils are the first to drop out, 
leaving the field to the younger pupils. A glance at the Boston 
figures reveals the same tendencies, but not in so marked a degree. 
Here the number of children above normal age at the outset is not so 
great relatively. 

The presence of pupils who are so far advanced in years in all the 
grades is a striking feature of our Porto Rican schools. While it is 
obvious that the age of 15, deemed a normal age for the eight grade, 
S. Doc. 135, 59—2 11 



162 



PORTO RICO. 



is often exceeded, it will be conceded that few care to stay in the ele- 
mentary schools when they have reached the age of 18 years. Hence 
we may consider that those who can not finish their common school 
education before the age of 18 are beyond any question very much 
beyond the normal age of their respective groups. We find this 
number to have been : 



Grade. 


Ages. 


Number. 


Per cent . 


Eighth 

Seventh 

Sixth 




18 years and upward. . 
17 years and upward . 
16 years and upward . . 
15 years and upward . . 
14 years and upward . . 
13 years and upward . . 
12 years and upward . . 
11 years and upward . . 


51 

70 

129 

284 

590 

937 

1,499 

1,607 


15.7 
14.7 
17.5 


Fifth 




19.5 


Fourth 

Third 


■ 


20.8 
25.2 


Second 

First 




29.1 
17.5 









Comparing these figures with those formerly given, including 
many who were only slightly above normal age, we find that the 
percentage instead of increasing to the fourth grade diminishes 
steadily after the second grade, and at the end is slightly less than 
at the beginning. In other words, the more advanced the age, rela- 
tively to the grade, the faster the children drop out of schools. It 
would seem, however, as if the persistence of these pupils in the 
schools was slightly greater in the eighth grade than in the seventh 
grade. 

With this somewhat full interpretation of the figures for the graded 
schools, it will hardly be necessary to more than glance at the cor- 
responding figures for the rural schools. Here we notice that the 
range of age among the beginners or in the first grade is even greater 
than in the graded schools. The percentage of pupils above normal 
age is much higher in the first grade, being 55.9, and rises in the 
third or final grade of these schools to 86.6. We find a very satis- 
factory explanation of this, in the fact that schools have been recently 
implanted in many rural districts, and in all of them the influx of 
new scholars has probably been greater than in any previous year. 

GRADES. 

Our discussion of the sex and age of the children in school has 
already indicated how important in any analysis are the different 
school grades. Those determine the position of the child within 
the school plan. Our system is based upon eight grades for the town 
schools and three for the country schools. The distribution of pupils 
in the several grades is shown in the following table : 

Table F. — Distribution of pupils enrolled March, 2, 1906, ~by grades. 





Number. 


Per cent. 


Grade. 


Graded 
schools. 


Rural 
schools. 


Common 
schools. 


Graded 
schools. 


Rural 
schools. 


Common 
schools. 


First . 


9,205 

5, 145 

3,723 

2,348 

1,451 

742 

473 

325 


16, 193 
6,193 
2,955 


25, 398 

11,338 

6,678 

2,348 

1,451 

742 

473 

325 


39.3 
22.0 
15.9 
10.0 
6.2 
3.2 
2.0 
1.4 


63.9 

24.4 
11.7 


52.2 




23.4 


Third 


13.6 


Fourth 


4.8 


Fifth 






3.0 


Sixth 






1.5 








0.9 


Eighth 






0.6 










Total 


23, 412 


25,349 


48,761 


100.0 


100.0 


100.0 







PORTO RICO. 



163 



It appears from this table that more than half the children are in 
the first grade and that the proportion is considerably larger in the 
rural schools than in the graded schools. The very high percentage 
in the rural schools is without doubt due in part to the extraordi- 
nary efforts made in the past year to increase school attendance. It\ 
seems not improbable, though we have no figures bearing upon this 
point, that the proportion is somewhat larger than in the previous 
year. If we turn our attention to the graded schools, it appears 
that nearly 40 per cent of the pupils are in the first grade. How 
shall we interpret this striking fact, that, of the eight years schooling 
which the system offers, so large a proportion of children should be 
in the first grade? If all the children who go to school completed 
their studies and completed them in the eight years provided, it is 
clear that the classes would diminish in numbers only as the popula- 
tion decreases, through the deaths of its members. But as nowhere do 
all children who enter the public schools complete their studies before 
leaving, we must seek in the experience of other places some standard 
by which to estimate the figures already cited. For this purpose I 
have drawn up from the report of the United States Commissioner of 
Education for 1903-4 the following table relating to 58 cities in the 
United States : 



Table G. — Distribution of pupils by grades in certain American cities. 
[Report of United States Commissioner of Education, 1903-4, pp. 1311-1313.] 



Grades. 


Systems without 
kindergarten. 


Systems with 
kindergarten. 


Total. 




Number. 


Per cent. 


Number. 


Percent. 


Number. 


Percent. 








71,409 ! 4.5 
311,959 19.8 


71,409 
350, 116 
279,938 
266, 300 
238,051 
201, 447 
155,275 
114,269 

83,240 


4.1 


First 


38, 157 
27, 319 
27, 243 
25,417 
22,420 
19,020 
14,242 
9,402 


20.8 
14.9 
14.9 
13.9 
12.2 
10.4 
7.8 
5.1 


19.9 




252,619 
239, 057 
212,634 
179,027 
136,255 
100,027 
73,838 


16.0 
15.2 
13.5 
11.4 
8.6 
6.3 
4.7 


15.9 


Third 


15.1 


Fourth 


13.5 


Fifth 


11.5 


Sixth 


8.8 


Seventh 


6.5 


Eighcii 


4.7 






Total 


183,220 


100.0 


1, 576, 825 


100.0 


1,760,045 


100 







For the purpose of this comparison the kindergarten pupils may be 
reckoned with the first grade. Here, again, we find the first grade 
more numerous than any other, the preponderant feature in the 
system, comprising nearly one-fourth of all the pupils. There is 
quite a falling off in the second grade, a decline of 8.1 points, but 
after that the decline is quite gradual, there being a difference of 
only 4.4 points when the fifth grade is reached. On the other hand, 
in the graded schools of Porto Rico nearly 40 per cent of the children 
are in the first grade, while the drop to the second is one of 17.3 
points, and the subsequent diminution is very rapid — a further 
drop of 15.8 points when the fifth grade is reached. These are the 
obvious facts — what is the probable explanation? The following 
circumstances have a bearing upon the case. 

1. The system is comparatively new. The pupils of the fifth grade 
who have been at least five years in school are survivors of the first- 
grade pupils of 1901. These were much less numerous than those 
of 1906. 



164 PORTO EICO. 

2. Children drop out of school earlier in their school career than 
in the United States. This is probably true of those who enter 
school young. It is certainly true of those who enter the schools 
comparatively late, and our discussion of ages has shown that this 
class is very numerous. 

3. The number of children who make slow progress in their work 
and who spend more than one year in a grade is larger than in the 
United States. 

Unfortunately we have not the data for measuring accurately the 
relative strength of these three features. We can only approximate 
them. Considerable light is thrown upon these problems by an 
inquiry made into the number of years which the children have been 
in school. 

LENGTH OF TIME IN SCHOOL. 

The length of time which a child passes in the schools is an impor- 
tant measure of the service which a school system is rendering the 
community'. In order to make this point plain resort may be had to 
a suppositious case. In community A let us assume that in each of 
the ages 7, 8, 9, 10, and 11 there are 1,000 children, and it is proposed 
to start a school system of five years providing for every child, and 
that each passes from one grade to another. In five years there will 
be 5,000 pupils in the schools and the same will be true five years later. 
Suppose a similar community B. In this, however, either the school 
plan is so defective or the teachers so inefficient or the pupils so stupid 
that each child requires two years in each grade. In that case at the 
end of five years there will be 5,000 pupils in the schools, but the old- 
est will be only half through, and at the end of ten years there will be 
10,000 children in the schools. In other words, to give the same 
amount of education requires double the equipment and double the 
efforts in B. Or let us take another aspect. Suppose that after ten 
years there are in A, under the conditions named, 5,000 pupils and in 
B a like number. In such case B is educating only one-half of its 
children, or else giving them only one-half the education which is 
being given to the children in A. 

The illustration has, I hope, made clear that for whatever cause 
children are delayed in the completion of their work by just so much 
does the school system lose from its maximum efficiency. The actual 
efficiency of the system can never be equal to its theoretical efficiency. 
There must always be some children who have not the same grasp as 
others. A certain percentage will fail to be promoted at the end of 
each year, and thus require more than the allotted number of years to 
complete their school work. The inquiry into the number of years in 
school has been made with a view to ascertaining whether in Porto 
Rico this percentage can be considered normal. The results of the 
inquiry are summarized in the following table : 



POKTO EICO. 



165 



Table H. — Distribution of pupils enrolled March 2, 1906, by grades and number oj 

years in school. 

GRADED SCHOOLS. 



Grade. 


Years in school. 


1 


2 


3 


4 


5 


6 


7 


8 


9 


10 


Total. 


First 


4,163 

204 

25 

11 

1 


3,676 

1,745 

302 

50 

10 

2 

2 

4 


1,110 

2,151 
1,446 
341 
71 
13 
16 
2 


216 

820 

1,387 

965 

311 

91 

50 

25 


37 
198 
480 
698 
608 
232 
92 
46 


3 

24 
75 
220 
357 
234 
118 
68 










9,205 




2 
7 
54 
79 
128 
119 
91 








5,145 


Third 


1 
9 
14 
30 

50 
69 






3,723 








2,348 


Fifth 






1,451 


Sixth. 


8 
16 
10 


4 
10 

7 


742 






473 


Eighth 


3 


325 






Total 


4,407 


5,791 


5,150 


3,866 


2,391 


1,099 


480 


174 


34 


21 


23, 412 



RURAL SCHOOLS. 



First 


8,854 

231 

15 


5,076 


1 714 436 ' 92 


21 
84 
150 






16.193 




2,199 2,279 1 1,050 j 324 
189 1,113 t 1,018 433 


24 
40 


2 
3 




j 6,193 


Third 




2,961 








Total 


9,100 


7,464 


5,106 2,504 849 


255 


64 


5 




25.347 




1 



Examining the figures for the graded schools, the table seems to 
show some extraordinary things. It is possible that 3 children in 
the first grade should have been as many as six years in school, bat 
how is it credible that 3 children in the eighth grade should have 
been only one year in school ? Evidently we have here an inaccuracy. 
These last are reported incorrectly. Omitting those extreme cases, 
we find that some children pass as many as five years in the first 
grade, and that in every grade there are children who take more 
than the allotted time. As the grades advance this number dimin- 
ishes proportionately and another class comes into prominence, 
those who finish their work in a period shorter than the allotted 
time. In a previous section we discussed the question, why do the 
numbers in the grades dwindle so rapidly ? This table enables us to 
make an approximate test of the accuracy of our conclusions. In 
this table 4,407 persons, or about 18 per cent, are beginning school 
work. Let us trace, if possible, the beginners of five years ago. In 
1901-2 there was an average enrollment of 39,504. Graded schools 
are not separated from rural schools, but judging by the number of 
each it is probable that there were about 17,000 children in the 
graded schools, and of these about 3,500 were beginners. Now let 
us look for these 3,500 in our table and we shall find them among 
those who have been five years in school. 

It was pointed out that the fifth grade of 1906 was composed 
in large part of survivors of the first grade of 1902, and the lat- 
ter was smaller than the first grade of 1906. It is probable 
that it numbered about 7,000 persons, of whom, as already stated, 
some 3,500 were beginners. 

It was also stated that children dropped out of school earlier than 
in the United States. Of the 3,500 beginners five years ago our 
table records only 2,391 as now present in the schools. In other 
words, there has been a loss of nearly one- third of these children. 



166 



PORTO RICO. 



Finally, it was stated that children advanced in their studies less 
rapidly than in the United States. Our table shows as follows : 



Have not reached filth grade, slow advance 
Have reached filth grade, regular advance . 

Have passed filth grade, rapid advance 

Have dropped irom school 

Total 




Per cent. 



40.37 
17.37 
10.57 
31.69 



100.00 



This single illustration in amplification of an earlier argument 
brings out with remarkable clearness the characteristic fact of this 
table, namely, an undue length of time spent in the grades. 

The foregoing is subject to some modification resulting from the in- 
completeness of statistical measurement. In our table we have not 
dealt and can not deal with fractions of years. This may affect 
materially our figures for the first grade. When we say that there 
were 3,67*6 children in their second year it is not equivalent to saying 
that in June, 1906, 3,676 children would have completed two years' 
work. Admission to school after the year opens is very frequent in 
the first grade, and there is no doubt that a considerable number of 
children complete onry a year and a half of work or even less. While 
we can not measure this exactly, we should never lose sight of the 
fact in considering these tables. 

A short expression of the delay in passing through the grades 
may be obtained by comparing normal progress with actual progress. 
Normal progress means taking one year of schooling to each grade. 
But as the children who enter the first grade late can not be expected 
to pass in the first 3 T ear, we may also compare figures taking two 
years for the first grade and one for each succeeding grade. The 
true measure probably lies between the two and both are presented in 
the following table : 

Table I. — Distribution of pupils enrolled March 2, 1906, in each grade, according to the 
number of years spent in reaching it. 





One year in each grade. 


Grade. 


■Under : 
normal. 


Normal. 


Above 
normal. 


Total. 


Under 
normal. 


Normal. 


Above 
normal. 


Graded schools: 
First 




4,163 

1,745 

1,446 

965 

608 

234 

119 

69 

8,854 
2,199 
1,113 


5,042 

3,196 

1,950 

981 

450 

170 

76 

17 

7,339 
3,763 
1,644 


9,205 

5,145 

3,723 

2,348 

1,451 

742 

473 

325 

16, 193 
6,193 
2,961 


Per cent. 


Per cent. 
45.2 
33.9 
38.8 
41.1 
41.9 
31.5 
25.2 
21.2 

54.7 
35.5 
37.6 


Per cent. 
54.8 




204 

327 
402 i 
393 ! 
338 I 
278 j 
239 ! 

23i 

204 i 

i 


3.9 
8.8' 
17.1 
27.1 
45.5 
58.8 
73.5 


62.2 


Third 


52.4 




41.8 


Filth 


31.0 


Sixth 


23.0 




16.0 


Eighth 

Rural schools: 


5.3 
45.3 


Second 

Third 


3.7 
6.9 


60.8 
55.5 



POETO EICO. 



167 



Table I. — Distribution of pupils enrolled March 2, 1906, in each grade, according to the 
number of years spent in reaching it — Continued. 





One or two years to first grade and one year 


to the others. 


Grade. 


Under 
normal. 


Normal. 


Above 
normal. 


Total. 


Under 
normal. 


Normal. 


Above 
normal. 


Graded schools: 
First 




7,839 

3,896 

2.833 

1,663 

965 

362 

169 

79 

13,930 
4,478 
2,131 


1,366 

1,045 

563 

283 

93 

42 

26 

7 

2,263 

1,484 

626 


9,205 

5,145 

3,723 

2,348 

1,451 

742 

473 

325 

16, 193 
6,193 
2.961 


Per cent. 


Per cent. 
85.2 
75.8 
■76.1 
70.8 
66.5 
48.8 
35.7 
24.3 

86.0 
72.3 
72.0 


Per cent. 
14.8 




204 
327 
402 
393 
338 
278 
239 


3.9 
8.8 
17.1 
27.1 
45.5 
58.8 
73.5 


20.3 


Third 


15.1 


Fourth 


12.1 


Fifth 

Sixth 

Seventh 

Eighth 


6.4 

5.7 
5.5 
2.2 


Rural schools: 

First 


14.0 




231 
204 


3.7 

6.8 


24.0 


Third : 


21.2 



By both of these methods of considering a subject we see a con- 
siderable proportion of children who have been unduly long in the 
first grade and a still larger proportion in the second grade. After 
this the proportion diminishes until, in the eighth grade, it is almost 
a negligible quantity. On the other hand, there is in the second 
grade a small proportion who reach that point in the first year and 
in each of the succeeding grades an increased proportion of children 
who have passed up more rapidly than the programme calls for. In 
the eighth grade these constitute nearly three-fourths of the pupils. 
This is a remarkably clear presentation in figures of the principle of 
the survival of the fittest. 

Turning our attention briefly to the figures for rural schools, we 
see here a preponderance of pupils in the first year due to the efforts 
to keep up attendance and enrollment. Here, also, the percentage of 
backward pupils is large, probably too large. Thus, to go into 
details, we see that of 2,504 pupils in their fourth year of schooling 
only 1,018 had attained the third grade and 1,486 were still in the 
first and second grades. 



PROMOTIONS. 



The results of the school work are reflected in the number of pro- 
motions. Such promotions occur normally at the end of the school 
year, but there are also promotions more or less occasional during 
the year. A system which includes the latter within its purview must, 
of necessity, compare promotions with the average enrollment of the 
schools. But where, as in the present instance, promotions at the end 
of the year only are reported, the proper comparison is with the 
number of pupils enrolled at the same period. The rules of the 
department prescribe examinations for eighth-grade pupils in June, 
and at no other time can there be any granting of diplomas in this 
grade which is equivalent to the promotions of the lower grades as 
a certificate of work completed. In the lower grades the matter of 
promotions is in the hands of the superintendents of schools. They 
can and do promote specially qualified pupils during the school year, 
but in genral, promotions are confined to the end of the year. In a 
few districts where promotions are more frequent than in others 
reports for annual promotions would appear less favorable. 



168 PORTO RICO. 

No correct interpretation of a high or low percentage of promo- 
tions in any given case can be made without a full knowledge of local 
conditions. In general a low percentage of promotions may be due 
to one or more of the following causes : 

(a) Defective grading.— If the grading in a system of schools is 
poor, if children are advanced or retained in the same class in an 
unsystematic and haphazard fashion, the class will be heterogeneous 
in its composition. Teaching will be more difficult and the percent- 
age of successful pupils less than where pupils are more evenly pre- 
pared for the work they undertake. 

(b) Different courses of study. — The amount of work to be covered 
in the course of the year as fixed in the course of study for the schools 
must be nicely adjusted in each grade to the age and capacity of the 
pupils. If this adjustment is lacking and a given grade is over- 
burdened with work, the result is disastrous. Fewer pupils pass to 
the next higher grade. Such a state of affairs works to the detriment 
of the school system by increasing the number of unsuccessful pupils. 
The latter are the first to leave the schools, and after a certain age is 
reached it is almost impossible to keep them in the schools. 

(c) Stupidity of pupils. — Any group of children in a school will 
show a general average of brightness, interest and application; but 
there will always be some who are backward, listless, and indifferent. 
Should this class assume a relatively large proportion in the group, 
the proportion of promotions is likely to be small. 

(d) Inefficiency of teachers. — How much the intelligence and 
capacity of the teacher has to do with the success of the pupils is 
too well known to be commented upon at length. It is an almost 
obvious conclusion that, other things being equal, Miss A, who in 
one third grade has 80 per cent of her children promoted, is a better 
teacher than Miss B, who in another third grade has only 60 per cent 
of her children promoted ; but obviously the judgment should not be 
pronounced until it is perfectly certain that other things are equal — 
that the pupils are equally intelligent. 

So many causes concur in promoting a low percentage of promo- 
tions in one case and, conservatively, a high percentage in another, 
that it would be hazardous to attribute it to any one cause. The 
analysis is not so important in tracing definitely the cause as it is in 
suggesting various remedies, all of which must be applied concur- 
rently if we are to secure the best results. The analysis of the figures 
for promotions was not carried further than the grades, with the dis- 
tinction in each of the pupils who had been only one year in the 
grade and those who had spent two or more years. The results are 
given herewith. 



POETO RICO. 



169 



Table J. — Promotions of pupils, June, 1906. 
GRADED SCHOOLS. 





Pupils one year 
grade. 


in the 


Pupils two or more 
years in grade. 


All pupils. 


Grade. 


Num- 
ber. 


Pro- 
moted. 


Per 
cent 
pro- 
moted. 


Num- 
ber. 


Pro- 
moted. 


Per 
cent 
pro- 
moted. 


Num- 
ber. 


Pro- 
moted. 


Per 

cent 
pro- 
moted. 


First 


4,929 

3, 171 

2,657 

1,668 

1,215 

618 

366 

237 


1,729 
1,635 
1,579 
956 
748 
434 
263 
122 


35 
52 
59 
57 
61 
70 
72 
51 


4,163 

1,606 

738 

453 

175 

109 

80 

64 


2,358 

1,165 

523 

355 


57 

73 
71 
78 


9,092 
4,777 
3,395 
2,121 


4,087 
2,800 
2,102 
1,311 


45 




59 


Third 


62 


Fourth 


62 


Fifth 

Sixth 

Seventh 

Eighth 


116 i 66 
65 ! 60 
64 I 80 
34 53 


1,390 864 
727 ! 499 
446 | 327 
301 \ 156 


62 
69 
73 
52 


Total 


14, 861 


7,466 


40 


7,388 


4,680 ' 63 

i 


22,249 


12,146 


54 



RURAL SCHOOLS. 



First 

Second 

Third 

Fourth 


10, 726 
3,047 
1,431 

28 


2,369 

1,515 

770 

3 


22 
50 
54 
11 


5,319 

2,855 

1,485 

49 


2,951 

1,781 

829 

30 


55 
62 
56 
61 


16, 045 
5,902 
2,916 

77 


5,320 I 
3,296 
1,599 : 
33 | 


33 
56 
55 
43 


Total 


15, 232 


4,657 


31 


9,708 


5,591 


58 


24,940 


10,248 


41 



It appears from these figures that at the end of the year there were 
22,249 pupils in the graded schools of Porto Eico, and that 12,146, or 
54 per cent, of them were advanced to the next higher grade. The 
proportion is astonishingly low if we state it in the form that little 
more than half the pupils of the schools were successful in their 
studies. In the first grade the proportion is less, only 45 per cent, 
but in the second grade it rises above the average to 59 per cent, and 
subsequently continues at about this figure until the sixth and seventh 
grades. In the latter the percentage is 73, but this falls in the eighth 
grade to 52. From these figures it is clear that the department of 
education, which conducts the eighth-grade examination, is more 
severe in its standards than the superintendents who are intrusted 
with the promotions in the lower grades. It would follow either that 
the tests of the eighth grade are too severe or those of the seventh are 
too lax. We have already seen in our discussion of ages and of the 
number of years in school how there is a gradual selection of pupils 
so that those who remain at the end of the course represent more uni- 
form ages, more uniform duration of studies, and probably a higher 
average of intelligence than those at the beginning. This seems to 
be reflected also in the more favorable promotion percentages in the 
sixth and seventh grades. But, as already pointed out, there is a 
marked break between the seventh and the eighth grades, which calls 
attention to the necessity of a better adjustment. The number of 
pupils of the eighth grade is in some districts very small. Of the 19 
districts, 11 only had as many as a dozen pupils in the eighth grade. 
Three only — San Juan, Ponce, and Bayamon — were exceptions to the 
rule that eighth-grade promotions were less numerous than seventh- 
grade promotions. 

Mention has already been made of the low percentage of promo- 
tions in the first grade. In view of the fact that this grade is con- 
stantly being recruited by new accessions, this was to be expected. 



170 PORTO RICO. 

No test of the work in the grade could be obtained without separat- 
ing pupils in the first year from those in the second and later years of 
schooling. Among the latter the percentage of promotion is 57, and 
among the former only 35. If we follow the same plan for the other 
grades we find that in each the proportion of promotions is greater 
among those who have spent more than a year in the grade. 

Taken as a whole, the number of promotions is distressingly low. 
While some pupils must, of course, fail in their work, a proportion 
of failures of nearly one-half is alarming. No rule can be given as 
to what constitutes a reasonable amount of failure, but it is generally 
conceded that it should not exceed 20 per cent. Thus, in the public 
schools of Chicago, in 1905, the successful pupils were 81.3 per cent 
of the average enrollment in the first four grades, and 84.9 per cent 
in the upper grades. 

In the rural schools the progress of the pupils has been even slower. 
In the first grade only 33 per cent of the pupils were promoted. We 
should expect here a lower number of beginners. But in the second 
and third grades, with 56 and 55 per cent of promotions, respectively, 
the rate of progress is less than in the corresponding grades of the 
graded schools. 

The situation in our schools calls loudly for a remedy, if one can be 
found. It shows how much work is still necessary to bring our 
schools to the highest standard of efficiency. None but the highest 
standards is admissible. In a given number of years efficient schools 
will do as large a work in disseminating education as a much larger 
number of inefficient schools. If pupils pass through the schools with 
only half the rapidity which has been computed, the schools can do 
only half the work contemplated. The next problem in the common 
schools of Porto Rico is to increase the rapidity with which the bulk 
of the children complete their courses, and thus increase the number 
Avho can receive an education within a given period of time. 

AGRICULTURAL SCHOOLS. 

A type of school closely approximating the ordinary rural school 
is the agricultural-rural school, of which there are at the present time 
11 in the island, though formerly there were 19. The schools were 
planned to combine instruction in agriculture with the ordinary 
instuction given in the rural schools. Each school was surrounded by 
at least an acre of land and oftentimes more, tools were provided, and 
the schools placed in charge of teachers of the graded rank who had 
taken some special courses in agriculture at a summer normal school 
to qualify them as teachers of agriculture. The daily programme 
included one or two hours of field w T ork under the supervision of the 
teacher, with explanations of the processes involved. 

It has already been noted in these reports that the schools have 
been only an indifferent success. This has been due to a variety of 
causes, some local and others general. The principal local causes of 
failure have been in some cases an unfortunate selection of sites 
for the schools and in others an unfortunate selection of teachers. 
But there has been another and more general cause of ill success in 
the difficulty of sufficiently differentiating these schools from other 
rural schools. They have been under the necessity of supplying the 
school needs of their neighborhood. Hence they have admitted many 



PORTO RICO. 



171 



little children, who, by reason of age and physical development, are 
utterly unfitted for any agricultural labor. In short, the character- 
istic features of the rural school have crowded out or reduced to 
trifling importance the special features of agricultural education for 
which the schools were established. Various combinations of adverse 
circumstances have led to the abandonment of the schools in several, 
localities, and where they have been continued under more favorable 
conditions the results have not been those hoped for. As favorable 
results as anywhere have been obtained in the schools of Sabana 
Grande, Lajas, and Cabo Kojo. In these schools a rural teacher is 
in charge, and a special agricultural teacher passes during the week 
from one school to another, devoting all his time to the teaching of 
agriculture. During the coining year a similar system will be tried 
in the town of Utuado. 

As before stated, these schools approximate very closely the rural 
schools in their structure and organization. The average enrollment 
for the year was 49.15 pupils per school and the percentage of attend- 
ance 88.97. The school at Bayamon was conducted with a double 
enrollment— a form of organization which is very questionable if any 
real work is to be done in agriculture. Despite this apparent handi- 
cap it must be acknowledged that good results were obtained. 

Examining further census results, we find the following distribu- 
tion of the sexes : 





Males. 


Females. 


Total. 


First grade 


248 
135 
46 


98 
65 
23 


342 


Second grade 


200 


Third grade 


69 






Total 


429 


182 


611 







The preponderance of the male sex is greater than in the ordinary 
rural school, the result doubtless of the special agricultural instruc- 
tion. In the latter the girls can, of course, take only a minor part — 
in the care of flower gardens. 

On the other hand the age distribution of the pupils does not show 
any marked variation from the type familiar in the rural schools. 
The following figures, giving the number of pupils at each age, show 
the same concentration in the ages 9 to 12 and the rapid falling off 
after that date : 



Age. 



5 years 

6 years 

7 years 

8 years 

9 years 



Pupils, 



10 years 

11 years 

12 years 

13 years 

14 years 



Pupils. 



Ill 
78 



Age. 



15 years . . . 

16 years . . . 

Total 



Pupils. 



61f 



The relatively small number of children in the third grade, where, 
if anywhere, it would be assumed that the agricultural instruction 
would be profitable, does not indicate that it offers an attraction 
sufficient to retain in school any considerable number of pupils. 



172 POKTO RICO. 

The latter conclusion would seem to be slightly modified by a con- 
sideration of the number of years in school. It appears that of 611 
pupils, 155 are in the first year, 214 in the second, 164 in the third, 
and 78 in later years of school life. It will be remembered that in 
the rural schools generally the first year of school life was most 
prominent; here, the second. If these schools retain for a second 
and third year a larger proportion of pupils than the rural schools 
generally, it is likely that this is due quite as much to the general 
attractiveness of the school surroundings as to any special attract- 
iveness of the instruction in agriculture. 

Our account of the agricultural instruction in the island would be 
incomplete without a reference to the school of practical agriculture 
established at Bio Piedras by the trustees of the University of Porto 
Eico. Unlike the other schools of the island supported by public 
authority, this is a boarding school. Twenty-eight boys are selected 
from various points of the island and are given here free board and 
tuition. The standard of admission is based upon the completion 
of the third grade of the common schools, in order that boys whose 
only training has been in the rural schools may not be excluded. At 
the same time robust physique is an essential, as the work is hard. 
In exchange for their board and tuition the boys are required to 
work daily five hours in the field. They work under the supervision 
of competent instructors, who give practical instruction as the work 
progresses. The farm comprises about 100 acres, of which about 
20 acres are under cultivation, mostly in pineapples, and a large part 
is in pasture land. Pineapples and dairying are the principal pro- 
ductive industries followed. Other crops are grown for food, and 
oranges and sugar cane are grown in small quantities to illustrate 
methods of cultivation. When the school opened in January, 1905, 
a few acres only were under cultivation. The cultivated area has 
been extended, roads constructed, land cleared, and farm buildings 
erected largely by the labors of the boys, aided by hired workmen 
for the heaviest work. 

In the afternoons field labor gives place to class-room instruction. 
Theoretical agriculture in its elements, English, arithmetic, and 
Spanish are the principal studies pursued. Boys who work during 
their free hours receive a compensation for their labors, and thus 
make their pocket money. The school furnishes their working 
clothes and their shoes. In a general way the methods of the Tus- 
kegee Institute are followed in the work of the school. 

The school has been in operation since January, 1905. The visible 
results in the improved condition of the farm are very marked. The 
pupils have also made good progress, and some who, though not grad- 
uates — the school has been in operation too brief a time to have 
graduates — have been unable to return to the school have already 
obtained good positions. 

INDUSTRIAL SCHOOLS. 

Industrial schools were originally established in 1903 in the cities 
of San Juan, Ponce, and Mayaguez, and later other schools were 
opened in Arecibo and Guayama. The schools were designed to 
meet a real need for a thorough technical training of a more ele- 
mentary sort, which is obviously lacking in Porto Rico. For the 



POKTO KICO. 173 

administration of these schools there was appointed a supervising 
principal who had had considerable experience in manual training 
schools in the United States. 

Very soon there appeared in the conduct of the schools and in 
the public opinion concerning them a more or less sharp distinction 
between the theory of manual training and the theory of industrial 
training. Certain elements were strenuously opposed to the idea 
of manual training, not so much in principle as because in their 
opinion manual training was a luxury which the people of Porto 
Rico could not afford. Opposition to the industrial schools I found 
to be very great when I reached the island in 1904, but the work 
of the year had already been started and new plans could not be put 
into force. The best that could be done was to study the situation. 
In the meantime, the opposition to the industrial schools seemed to 
grow in strength, and a considerable effort was made in the legislature 
of 1905 to abolish those schools. The result of the discussion was a 
compromise by which the schools at San Juan, Ponce, and Mayaguez 
were maintained but those of Arecibo and Guayama abandoned. 
The principal defect, if the current criticism was correct, was that the 
schools were not practical. 

In the school year 1905-6 a number of important changes were 
made in the conduct of these schools. The position of supervising 
principal was abolished and heads of the three schools entered 
into closer and more intimate relations with the department. Grad- 
ing in academic work was made entirely distinct from grading in 
the shop work. For one group of pupils all shop work was done in 
the morning, for another in the afternoon, the remaining time being 
given to academic work. Thus all teachers were constantly em- 
ployed, and the capacity of the school increased by increasing the 
number of pupils per teacher. Every effort was made, within the 
limits of the available equipment, to give the schools a practical 
character. So far as possible actual objects were substituted for 
mere models, and children were taught to make definite things, 
actual dresses rather than dolls' dresses, and real furniture in- 
stead of toy chairs and tables. Of course the fact of such changes 
is only obvious to the close observer, and the casual visitor would 
not see very much difference. Preliminary operations, whether the 
ideal is manual training or whether the ideal is industrial training, 
are of necessity very much alike. 

Notwithstanding these changes, it appeared that public opinion 
was dissatisfied with the work of these schools, and in the legisla- 
ture of 1906 appropriation for these schools were stricken out of the 
budget by the house of delegates, which in the meantime had passed a 
law abolishing these schools, but merging their material and equip- 
ment with that of the boys' and girls' charity schools into a new or- 
ganization, to be known as a school of arts and trades. This measure 
did not reach the executive council until the day before the session 
closed. The executive council therefore did not have time to con- 
sider it. 

An analysis of this measure at this point would be unnecessary. 
So far as it relates to the institutions known as the boys' and girls' 
charity schools it has no bearing on the present situation. Schools 
of arts and trades desired by the house of delegates were to be built 



174 



PORTO RICO. 



upon the industrial schools. While time was not available for work- 
ing out the plan of these schools and for a thorough discussicm of the 
bill which passed the house of delegates, the latter body was unwill- 
ing to make the appropriations for the industrial schools in exactly 
the form in which such institutions had previously existed. It there- 
fore provided the appropriation of a round sum for the purpose of 
schools of arts and trades, leaving the nature and organization of such 
schools to be determined by a commission. 

The work which that commission has before it would seem to be 
to settle the scope of these schools, to see that instruction in them is 
upon a thoroughly practical basis, determine the degree of maturity 
and general education which shall be required of pupils to enter into 
these schools, the amount of general training which should accom- 
pany specific industrial training, and the different kinds of industrial 
training which may be properly introduced, and similar questions. 
While it seems to be clear that the industrial schools should lean 
toward the trade school rather than to the manual training school 
the important question is, How can this be effected with the appro- 
priations which the government can afford to make for such pur- 
poses? The future of these schools therefore rests for the present 
with the commission above referred to. 

Turning now to the work accomplished in the past year, it is grati- 
fying to note that the three scools in operation had a total enrollment 
of 619 pupils, as compared with 590 for five schools in the previous 
year. Moreover, the excellent work done in the three schools during 
the past year is reflected in the figures for the average enrollment, 
which are as follows : 





1905-6 
(3 schools). 


1904-5 
(5 schools) . 


Average enrollment : 


521. 63 
528. 76 
509. 36 


590. 95 




559. 68 




470. 96 








521. 36 


539. 24 







It will be noted that there was an increase in 1905-6 between the 
first and second terms, and that the falling off in the third term was 
comparatively slight. On the other hand, in 1904-5 there was a 
constant falling off throughout the year, though the great fall in the 
third term was due to the prospective closing of the schools in Arecibo 
and Guayama. But on the other hand, the three schools not affected 
by this change fell off from an enrollment of 373.60 in the first term 
to 298.77 in the third. 

The attendance throughout the year has been fairly satisfactory, an 
average of 90.26 per cent being attained, a figure which has varied 
very little from one term to another. 

The enumeration of pupils in March, 1906, showed : 





Boys. 


Girls. 


Total. 




70 
134 
51 


77 
120 
69 


147 




254 




120 






Total 


255 


266 


521- 







POETO RICO. 



175 



It will be observed here, as in the upper grades of the graded 
schools, there is a tendency toward equality in the number of the 
sexes. The distinctively feminine occupations, such as sewing, 
embroidery, and millinery, pursued in the schools would seem to have 
equal attractive force with the carpentry, leather work, and metal 
work offered to the boys. 

The ages reported are as follows : 



9 years 

10 years 

11 years 

12 years 

13 years 

14 years 

15 years 

16 years 

17 years 

18 years 

Over 18 years . 

Total... 



Age. 



San Juan 



Ponce. 



254 



Mayaguez. 



Total. 



2 

14 

38 

71 

118 

138 

81 

40 

11 

3 

5 



521 



The children of these schools are older than the average of the 
common schools corresponding to the pupils of the upper grades in 
the graded schools. 

As the industrial schools occupy a peculiar place in the school 
system, and have their own system of grading, an analysis by classes 
would afford no comparisons with the facts already ascertained. A 
further analysis of the census results may therefore be omitted. 

HIGH SCHOOLS. 

High schools have been in operation in the cities of San Juan, 
Ponce, and Mayaguez. In the last named, however, there was no 
fourth-year class. The school at Ponce graduated in June, 1906, 
its first class upon the termination of the four-year course. 

The school at San Juan is located in the old San Francisco bar- 
racks, which in the summer of 1905 were largely reconstructed to 
adapt them for school purposes. At Ponce a handsome new build- 
ing for the high and grammar schools was completed in September, 
1905. The school at Mayaguez is located in the Farragut School 
erected by tjie department, but the quarters allotted to the high 
school proper have been somewhat cramped and inconvenient. 

In view of the comparatively recent introduction on the island of 
the American school system, the number of children annually pre- 
pared for high school work has been small and the schools have 
been conducted on a very modest basis. The following figures are 
indicative : 





Number 

of 
teachers. 


Total 
enroll- 
ment. 


Average 
enroll- 
ment. 


Average 
attend- 
ance. 


Attend- 
ance. 




7 
3 
3 


G4 
49 
31 


56.56 
42.62 
24.72 


54.30 
41.05 
23.62 


Per cent. 
96.00 




96.32 




95.55 








13 


144 


123. 90 


118. 97 


96.02 







176 



PORTO RTCO. 



In stating the number of teachers no account has been taken of the 
principal of the school, who is also to some extent engaged in the 
work of instruction. The figures show relatively a considerable fall- 
ing off in the number of pupils, as those lost can not be replaced. 
They show also very satisfactory attendance conditions, which com- 
pare very favorably with the high schools in the United States. 

The enumeration of pupils made March 2, 1906, showed the fol- 
lowing pupils in the high schools : 





Boys. 


Girls. 


Total. 




45 
25 
13 


11 
18 
12 


56 


Ponce 


43 


Mayaguez 


25 






Island 


83 


41 


124 







It will be noted that the number of boys is greatly in excess of the 
girls, a relation exactly opposite what is found in the United States. 
The high school is not in Porto Eico, as it is in many of the States, 
a preparation for the normal school, and the girls who desire to 
become teachers are not attracted to it. 

The enumeration also showed the ages of the pupils as follows : 





Age. 






12 
years. 


13 

years. 


14 
years. 


15 16 
years, years. 


17 
years. 


18 
years. 


Over 18 
years. 


Total. 


San Juan 






3 
5 
2 


9 17 
6 | 11 
6 9 


12 
6 
6 


10 
10 

1 


5 

4 


56 


Ponce 


1 


1 


43 


Mayaguez 


25 








Total 


1 


1 


10 


21 


37 


24 


21 


9 


124 







The students are slightly older than in corresponding schools in the 
United States. 

The San Juan school graduated in June, 1906, a class of seven 
pupils. There is every reason to be well satisfied with the results 
obtained in these institutions. Pupils pass readily from them to the 
best American colleges, and many of the latter are willing to admit 
the pupils without examination. San Juan graduates are represented 
in Cornell, Princeton, Dickinson, and Rutgers, while Ponce gradu- 
ates have entered at Cornell, Syracuse, and Pennsylvania. The 
department of education of the State of New York has recently 
placed the San Juan and Ponce high schools upon its list of approved 
schools, which entitles the graduates of such schools to enter without 
examination any college or university in the State of New York. 

The year marked the establishment of two-year commercial courses 
in all the schools. They have proven very popular, absorbing a large 
proportion of the entering classes, and probably contributing to the 
fact that entering classes were somewhat larger than before. 

Connected with each high school there are also lower grades under 
lished principally as feeders to the high schools and to insure a proper 
the general supervision of the principal. These grades were estab- 
preparation for the high school work. In San Juan and Ponce they 
were organized in 1905-6 as grammar schools, taking in all the upper 



POETO RICO. 



177 



grades of the city. In Mayaguez they are organized simply as a 
graded school embracing all the grades. In former years these 
graded schools attached to high schools were distinguished from the 
other common schools in that instruction in them was given in 
English. With the spread of English as the language of instruc- 
tion, this distinction has passed away. All the facts relative to the 
grades have been included in one treatment of the common schools. 
They are mentioned here as a part of the organization of the high 
schools. 

THE INSULAR NORMAL SCHOOL. 

The insular normal school at Rio Piedras administered by the 
trustees of the University of Porto Rico is an integral part of the 
public school system. It receives as students graduates of the eighth 
grade of the public schools of Porto Rico and offers -them a two-year 
and a four-year course in normal training. The subjects taught 
in the common schools are reviewed and presented from the teachers' 
standpoint, advanced studies are undertaken, and opportunity for 
practice teaching under supervision and criticism is given in the 
graded school connected with the institution. At the end of two 
years pupils receive an elementary certificate. This entitles them 
to a license to teach in the graded schools of Porto Rico if they 
have the requisite age. If not, they receive a rural license, subse- 
quently changed for a graded license when the legal age is attained. 
Many of the pupils, however, continue with the school in order to 
obtain its diploma, which is issued at the end of four years' study. 
Persons holding this diploma are entitled, after one year's teaching 
in the public schools and on attaining the age fixed by law, to re- 
ceive i principal's license. 

The pupils of the school are drawn from all parts of the island. 
In order not to exclude from the school deserving persons, who 
are without the means to follow a course of study away from home, 
the government provides 28 scholarships, which, in accordance with 
law, are allotted to different parts of the island. In addition to 
the scholarship pupils many others come from distant points, and 
there are numerous instances of families moving to Rio Piedras in 
order to educate their children in this school. 

During the year 1905-6 there were 130 different pupils enrolled 
in the school. 

When the pupils of the schools were counted, this school had 115 
pupils, of which 51 were boys and 64 were girls. Their ages were 
as follows: 





Age. 




Year. 


14 

years. 


15 

years. 


16 

years. 


17 
years. 


18 

years. 


Over IS 

years. 


Total. 


First s 


2 


12 


9 
5 
1 


12 
9 

10 
3 


9 
5 

7 
2 


9 

7 
5 

7 


53 
26 
24 
12 


Second 


Third 




1 


Fourth 













School 


2 


13 


15 


34 


23 


28 


115 





The table shows a normal age distribution with pupils sufficiently 
mature as a rule for the studies in which they are engaged. It 
S. Doc. 135, 59—2 12 



178 PORTO RICO. 

shows some irregularity in the numbers in each class, especially in 
the second year, due to a comparatively small entrance class in the 
previous year. 

In connection with the normal school there is maintained a graded 
school in which the eight grades of the common school system are 
divided among six teachers. The school is of much importance 
to the town of Rio Piedras, giving its citizens the opportunity to 
receive the most thorough type of instruction. At the same time it 
gives the pupils of the normal school the opportunity of practical 
teaching under competent supervision. The statistics of this prac- 
tice school have already been included in the treatment of the com- 
mon schools. It is mentioned here as a part of the normal school 
system. 

NIGHT SCHOOLS. 

In the principal towns of the island there are one or more night 
schools, in which are taught reading, writing, and elementary arith- 
metic. These schools are intrusted to the care of one of the teachers 
in the day schools, who receives an extra compensation for this addi- 
tional service. In a very few cases night schools have been estab- 
lished in the rural regions, but except in well-populated villages or 
hamlets, there is little opportunity for such rural night schools. 

In the contemplation of the school law these night schools are not 
intended primarily for adults. Their purpose is to reach the class of 
working boys and girls whose education has been neglected, and only 
in case such young persons are not sufficiently numerous to fill the 
rooms is the admission of adults permitted. 

As the night school can be conducted at a comparatively small 
expense, it has been the policy of the department to favor them. 
Wherever the experiment seemed to offer reasonable prospect of suc- 
cess the opening of such schools was permitted. Accordingly the 
number of schools opened during the year, 80, is considerably in 
excess of the number in operation in the previous year, 37. 

Of all the schools in the system the night schools are the most 
variable. They depend for their existence and their attendance 
almost wholly upon the interest of the pupils. Moreover, the pupils 
are of an age liable to be drawn away by the desire for amusement. 
Good resolutions to attend night school are frequently not enduring, 
and schools once opened are closed for lack of pupils. In December, 
1905, there were 63 schools open; in March, 1906, 73, and the same 
number in May. 

The aggregate enrollment in the night schools for the year 1905-6 
was 7,058 persons, but the personnel of the schools was constantly 
changing. On March 2, 1906, when the census was taken, the number 
of pupils enrolled was 2.846. As we have already seen, the record of 
that date for the common schools was a very fair approximation to 
average conditions. We have no reason to assume it otherwise in the 
case of night schools, and we may, therefore, conclude that about 
3,000 pupils were enrolled at any one time. To illustrate the fluctuat- 
ing character of the school population it is sufficient to say that if 
every pupil enrolled had stayed the same length of time the schooling 
per pupil would have been of four months' duration instead of nine. 
Of course there were some of the pupils who continued faithful to 
their work throughout the year; and hence the number whose con- 



PORTO RICO. 



179 



nection with the school was less than four months in length must have 
been very great. 

The enrollment per school is inferior to that of the common schools. 
In the average of the year it was 38.20. In the first term it was 
40.97, in the second 38.42, and in the third 35.05, showing with 
unmistakable clearness the gradual decline in interest which is 
inseparable from schools of this class. Not only is the general aver- 
age per school lower than in the common schools, but the range of 
variation is much greater. The maximum of 57.95 is found in 
Sabana Grande, the minimum of 23.94 in Comerio. The district 
maximum and minimum are found in the corresponding districts of 
Yauco and Aibonito. Local conditions seem to have a greater influ- 
ence in determining a large or small enrollment than in the case of 
the common schools. 

As the enrollment in these schools is fluctuating, so the attendance 
is liable to be fitful and irregular. Throughout the year the per- 
centage of attendance was only 81.44. It improved somewhat during 
the year, passing from 74.66 in the first term to 77.17 in the second 
and 81.80 in the third, indicating, probably, the greater regularity in 
attendance of those pupils who persisted in their studies throughout 
the year. The variation in the different towns is very considerable, 
the best attendance being obtained in Sabana Grande, 95.14 per cent, 
and the worst is Fajardo, 65.37. It is noteworthy that Comerio, 
already noted for a low enrollment, had thehigh attendance of 93.07 
per cent, following immediately after Sabana Grande in this respect. 
The best showing by districts was made in Aibonito (89.62 per cent), 
closely followed by Ponce (88.98 per cent), while the poorest showing 
was made in Bayamon (68.74 per cent) . 

The pupils in the night school are preponderantly males. Of 2,846 
pupils recorded at the census of March 2, 1906, only 508 were females. 

The ages of the pupils in these schools is given in the following 
table : 



Table K. — Distribution of pupils in night schools by grades, ages 


, and sex 




Ages. 


Grades. 


First. 


Second. 


Third. 


Fourth. 


All. 




3 

9 

28 

43 

111 

90 

241 

157 

205 

239 

167 

153 

185 

457 








3 
11 






2 
1 










29 




2 
6 
10 
47 
31 
71 
59 
63 
65 
76 
165 






10 years 


3 
3 

5 

10 
23 
27 
19 
16 
14 
20 




120 


1 1 years : 




103 






293 






198 


14 years 








10 

1 

4 
3 

2 


335 
250 
238 
278 
644 


16 years 


17 years 


18 years 


Over 18 years 




Total 


2,088 


595 


143 


20 


2,846 




Males 


1,709 
379 


491 
104 


118 
25 


20 


2,338 
508 


Females 









If we consider those older than 18 years as adults for all practical 
purposes, we observe that only 644, or a little more than 22 per cent, 
of the pupils come in this class. Of the remaining pupils, 1,081, or 



ISO PORTO RICO. 

very nearly one-half, are in the ages 15 to 18, inclusive, and the re- 
mainder are under 15. The presence of 1,121 children under 15 
years of age in the night indicates their peculiar character. It also 
suggests the difficulties which must be encountered in teaching classes 
made up of pupils of such diverse ages. 

As in comparatively few points are there more than one night 
school, they partake in general of the same nature as the rural 
schools where a teacher is engaged in teaching two or three grades 
at the same time. Grading in these night schools follows the rural 
schools. While a very few pupils have reached the attainments of 
the fourth grade, most of the pupils are in the first three grades. 
However, the proportion of pupils in the first grade is very much 
larger than in the rural schools. 

The facts above set forth and the further considerations that 1,910 
pupils were in their first year of schooling, 641 in the second, and 
only 285 had been in school more than two years, indicate the very 
slight persistence of these pupils in their school work. 

It must be confessed that the record made by these schools is thor- 
oughly dispiriting. It is clear that pupils pass in and out with such 
rapidity that the greater part of the teacher's energy is wasted. On 
the other hand, the statistics do not show the number of pupils who 
continue their work throughout the year. Until such information is 
obtained a final judgment upon the value of the schools must be 
reserved. 

PRIVATE SCHOOLS. 

In order that our view of the educational work of the island might 
be complete, the cooperation of the private educational institutions 
was sought. Through the courtesy of their proprietors, which is 
most gratefully acknowledged, we are able to present a few impor- 
tant facts in regard to private schools. A very thorough canvass of 
the island was made, and it is believed that the results are substan- 
tially correct. There were 93 separate institutions reported, of 
which two-thirds, 62, were single schools in charge of a single 
teacher. On the other hand, the number of schools, using that term 
to mean as in the statistics of public schools, the class group was 167. 
The number of teachers reported was 202, and the number of pupils 
enrolled 4,316. The number of pupils per school was 26; the num- 
ber of pupils per teacher, 21. Both of these figures are much smaller 
than those for the public schools. The private schools deal with 
much smaller groups. The private schools reported also, in the week 
ending March 2, 1906, an average attendance of 3,509.33, or about 81 
per cent. This proportion is much less than in the graded public 
schools and would indicate either that attendance is less regular or 
that less care is taken in removing from the enrollment pupils who 
have ceased to effectively belong to the schools. 

SUMMARY. 

To complete the picture of the educational work in Porto Rico 
which it has been our endeavor to give, a summary relating to all the 
schools is necessary. The following figures bring together the notices 



POKTO EICO. 



181 



scattered through this report in regard to each type of school on the 
date March 2, 1906 : 



Type of school. 



Pupils 
enrolled. 



Graded 

Rural 

Common 

Agricultural rural 

School of practical agriculture 

Industrial 

High 

Normal 

Total public day schools 

Night schools 

Total public schools 

Private schools 

Total schools 




50, 153 
2,338 

52, 491 
4,316 

56. 807 



CONCLUSION. 

In the course of this report it has been necessary, in order to 
present a complete record of the educational work of the island, to 
present many subjects from a rather technical point of view. It 
may be that at times the exact purpose of the statements made is 
only evident to a person well versed in school matters. And yet 
despite some aridity in detail it is believed that all who consider the 
record will discover in it the most encouraging signs of progress. 

The main points which can not escape observation are — 

1. An improved office organization. 

2. Better knowledge of school conditions. 

3. Better supervision by the superintendents and better supervision 
of the superintendents. 

4. Improved school buildings. 

5. More efficient local administration of schools. 

6. The gradual spread of English as a medium of instruction. 

7. Increased utilization of school facilities as in the increased 
number of pupils per teacher. 

8. Increase in the enrollment of pupils. 

9. Great stability in attendance. 

10. Increase in the number of pupils in secondary schools. 

That this progress could be made is due to the loyal service of all 
concerned in the work of school administration, office force, superin- 
tendents, and teachers. It is due to the cordial cooperation which 
has existed between this office and all other executive departments. 
And lastly it is due to the profound interest which the people of 
Porto Rico take in educational matters, and to the warm support 
which they have given to the efforts of the authorities in behalf of 
the progress of the schools. 

I have the honor to be, very respectfully, 

Roland P. Falkneb, 
Commissioner of Education. 
The Governor of Porto Rico, 

San Juan, P. R. 



Exhibit G. 

REPORT OF DIRECTOR OF HEALTH, CHARITIES, AND 
CORRECTION. 

Office of the Director of Health, Charities, 

and Correction of Porto Rico, 

San Juan, P. R., July 1, 1906. 

Sir: I have the honor to submit the reports of the bureaus of 
health, charities, and prisons, which form the consolidated depart- 
ment, for the fiscal year ending June 30, 1906. 

The conditions of the various bureaus of the department have 
continued to improve during the present year on a solid basis. 

As you will observe in the report of the supervisor of charities, 
the blind asylum, located in the city of Ponce, was opened to the 
public on September 23, 1905, and without loss of time patients were 
admitted from all parts of the island, it being a satisfaction for me 
to state that the care of the experienced physician appointed to the 
asylum has been the means of restoring the sight of quite a number 
of patients. This institution is adequately managed in every respect 
and promises to progress rapidly, both with respect to an increase 
in the number of inmates and in the number of successful operations 
and cures. 

In the insane asylum extensive repairs, which were sadly needed, 
have been made, and about $5,000 have been expended for that pur- 
pose to great advantage. To-day the inmates number 242, of which 
number 22 are pay patients and the rest paupers of both sexes, and 
by the end of the present month all the insane in the island will 
obtain shelter in the establishment, with the exception of about 16 
paupers who will be housed shortly afterwards. The desired aim of 
the institution has not been fully accomplished, as about $3,000 are 
needed for sundry repairs which, when done, will place the institu- 
tion in excellent condition. I refer for particulars to the able report 
of the superintendent of charities herewith attached. 

The leper colony on Cabras Island, at the entrance of the port, con- 
tinues to be kept in thorough condition. Some slight improvements 
have been introduced, costing about $900, but now a new burial 
ground is needed and this is a matter that will brook no delay. 
Twenty-five lepers of both sexes are now confined to the colony. 

At the boys' charity school there are on an average 270 inmates 
between the ages of 6 and 16 years. On reaching the latter age they 
are obliged to leave the establishment. Considerable delay in this 
matter is often experienced, for either the parents of inmates who 
have reached the age of discharge are too poor to receive them 
or the boys are orphans and have no homes to return to. In such 
cases situations are procured for them when possible. 
182 



POETO RICO. 183 

The girls charity school contains about 174 inmates between the 
ages of 6 and 16 years. On completing their seventeenth year the 
girls are obliged to leave the establishment. The same difficulties 
attend the discharge of the girls as those experienced with the boys 
and are overcome in a similar manner. Two thousand dollars, 
approximately, have been expended during the year in sundry repairs 
to the institution which, under the able management of its present 
superintendent, is one of the best conducted public establishments in 
the island. 

COEEECTION. 

The penitentiary, situated in the Marina district, is kept by its 
competent warden in excellent condition and is subject to thorough 
discipline. About 600 prisoners are confined in this institution, most 
of them for larceny. The building is inadequate for such a large 
number of prisoners, who are too much crowded. A new penitentiary, 
large enough to accommodate 1,000 prisoners at least, should be con- 
structed with all modern improvements. 

As the district jail of San Juan, which belonged to the municipal- 
ity of this city, has been sold to a corporation, the building has to be 
vacated at once. This has necessitated the building of a second story 
on a portion of the penitentiary building, capable of accommodating 
about a third of the inmates of the jail, and "the remaining two- 
thirds will be confined in the new jail at Arecibo until a new jail can 
be constructed at Puerta de Tierra. 

Use of the old jail at Arecibo will shortly be discontinued and all 
the prisoners will be confined in the new jail, which is sufficiently 
ample to accommodate about 250 inmates. 

The building used as a jail at Aguadilla is rented from the ayun- 
tamiento, and does not quite cover the needs of a district jail, but 
there is no other of its size, or as well suited for the purpose in the 
town. 

The jail building at Mayaguez is also rented from the ayun- 
tamiento. It is large, but its space is improperly distributed and its 
drainage is very imperfect. The jail will, however, be shortly trans- 
ferred to half of the lower floor of the former Spanish infantry bar- 
racks, which is quite an extensive building. The other half of the 
lower floor is occupied by the insular police station. The upper floor 
is occupied by the Federal, district, and other courts pertaining to 
that jurisdiction. 

The Ponce district jail occupies the lower floor of the building 
formerly used as a Spanish infantry barracks. The structure is 
ample for the purposes of a jail and is in good condition. The estab- 
lishment is well conducted and proper discipline maintained. There 
are at present 265 prisoners confined in the institution. 

The Guayama jail is situated in the town of that name. The build- 
ing is fairly large and fills the requirements of the institution, but 
many improvements are needed which would have to be borne by the 
insular government, as it was leased with that condition. 

The Humacao jail is a building leased from the ayuntamiento, 
with the condition that required repairs must be made by the lessee. 
It lacks considerable repairs and the absence of an aqueduct in the 
town makes it difficult to maintain the proper hygienic conditions in 
the establishment. It is now occupied by 143 criminals. 



184 PORTO EICO. 

The bureau of prisons, with its seven district jails and its peni- 
tentiary, has under its control from 1,800 to 1,930 prisoners. Of 
these a considerable number are employed all over the island in the 
construction and repair of public roads, as also in the improvement 
of streets in some of the towns, and the sanitation of same where such 
has been neglected by the respective ayuntamientos, due to the lack 
of funds. Thus, and by aiding public works, a large amount of 
money has been saved for the people of Porto Rico. (See Report of 
the supervisor of prisons.) 

After considerable delay the city of Mayaguez has donated to the 
people of Porto Rico a tract of land of about 60 acres, situated at 
Point Guanajibo, about half an hour's drive from Mayaguez, for the 
purpose of establishing a correctional school. The location is a very 
good and healthy one, commanding a fine view of the Mona Channel, 
which separates this island from that of Santo Domingo. No building 
has as yet been erected on the spot, but a structure capable of accom- 
modating about 100 boys to begin with will be built during the course 
of the new fiscal year. 

HEALTH. 

The bureau of health endeavors to its utmost to fulfill its duties, 
but it has a very hard task. The bureau has two able physicians as 
inspectors for the northern and southern districts of the island, and 
they are obliged to be constantly on the move in order to make the 
local health officers adhere to their duties and enforce necessary 
hygienic measures. Much is done by the bureau, but the desired 
standard has not yet been reached. An epidemic of measles broke out 
in the month of November. The disease was mostly confined to chil- 
dren all over the island, but the fatal cases were comparatively few 
in number. 

A veterinary surgeon is attached to the bureau. His duty is to 
inspect cattle and horses throughout the island, but the task is by far 
too extensive to be thoroughly performed by one inspector, and at 
least four veterinarians are required for the work. However, in spite 
of these many difficulties, the country is healthy and the mortality 
has been much reduced. (See report of the supervisor of health.) 

On the whole this department, though greatly handicapped with 
its reduced budget, which is hardly sufficient to meet its requirements^ 
has done its best for the several branches under its control. 
I have the honor to be, sir, very respectfully, 

Andres Crosas, 
Director of Health, Charities, and Correction. 

Hon. Beekman Winthrop, 

Governor of Porto Rico, San Juan, P. R. 



REPORT of the supervisor oe health. 

Office of Health, Charities, and Correction, 

Supervisor of Health, 

San Juan, P. R., July 1, 1906. 
Sir : Following I have the honor to submit my report on health affairs in the 
island during the fiscal year that has just expired. This reports covers the 
period from July 1, 1905, to June 30, 1906. 



PORTO RICO. 185 



Much difficulty has been experienced in the transaction of business, due to the 
insufficiency of our office force. This is an evil from which this department has 
suffered since the bureaus of health, charities, and prisons were brought under 
one head on April 1, 1904. 

As a result of imprudent economy many efficient employees were dismissed, 
salaries reduced, and the service so injured as to show that the greater part of 
the economy accruing from the decrease in the number of employees and the 
reduction in salaries was bad policy and further demonstrates the needs of the 
service, at least as far as clerical work was concerned, were not well under- 
stood. At a later date, on assuming control of this department, you expressed 
a desire to remedy this evil, and although you have done all in your power to 
relieve the situation, our budget has not been sufficiently increased to permit a 
decided change for the better. Until the legislature realizes that a sufficient and 
efficient force is essential to the proper management of this most important 
branch of the administration and a sufficient increase made in our budget for 
salaries, this department can never reach the standard formerly obtained by the 
bureaus of health and charities when separate organizations. 

At present, in order to make up for the deficiency in our office force, we are 
obliged to confide important work that should be performed by experienced 
clerks to unsalaried apprentices, who, no matter how zealous, must necessarily 
commit errors that are, to say the least, embarrassing. 

EXILES AND REGULATIONS. 

On April 29, 1902, a provisional code of sanitary rules and regulations was 
approved by the Hon. William H. Hunt, governor of Porto Rico. These regula- 
tions are still in force, but although they were at that time sufficiently ample 
they soon fell short of the constantly growing needs of this bureau. The law 
consolidating the offices of health, charities, and correction authorized the 
director to prepare and submit for the approval of the executive council a new 
code that would cover the needs of the bureau. Under the regime of the first 
director an attempt was made to secure new regulations, but none were obtained, 
and under the present regime, with the exception of the "food and drug" 
regulations, those governing the " construction of privies in rural districts " and 
the "storage and sale of explosives," which were approved by the executive 
council on April 17, September 12, and October 12, 1905, respectively, two dis- 
tinct attempts to obtain sanitary legislation have completely failed. 

In the month of July. 1905, it was brought to the notice of this bureau that 
hogs in various parts of the island were extensively diseased. The chemical 
microscopical examination of samples of pork showed the presence of trichina 
spiralis and cysticerci. The veterinary inspector and the director of the 
chemical laboratory were sent to Manati, the district reported to be most 
afflicted. After a careful inspection this was found to be the case, and the hogs 
in the municipality of Manati were quarantined. As the manner in which hogs 
are bred and reared here is exceedingly objectionable, the animals being gener- 
ally fed on garbage and offal, which are germ producing, special regulations 
for the breeding, rearing, and slaughter of swine were prepared and submitted 
to the executive council. These regulations were approved on August 8, 1906, 
but no sooner was an effort made to enforce them than a general protest- 
throughout the country was raised, in consequencee of which these regulations 
so important and so necessary to insure the wholesomeness of pork, which is 
consumed in large quantities, were annulled by the executive council. 

The milk regulations suffered a similar fate. They were approved by the 
executive council and when protested against repealed, and dealers now sell 
milk with a few restrictions as' to milking, transportation, keeping, and sa'e 
This is unfortunate, as milk is one of the greatest vehicles for transmitting: 
disease germs. 

A carefully prepared sanitary code, which was approved by the superior 
board of health after careful consideration, was submitted to the legislative 
assembly during its last regular session, in February, 1906, but no action what- 
ever was taken in the matter ; rather, on the contrary, municipal sanitary laws 
to an extent m conflict with the regulations that now govern this bureau were 
approved thereby creating still greater difficulties for this office than it has 
hitherto had to contend with. 

It is beyond doubt a fact that this bureau is greatly in need of sanitary 
legislation, and without it the proper sanitary standard can never be reached 



1S6 PORTO RICO. 

CONTAGIOUS DISEASES. 

The only epidemic in Porto Rico this year has been that of measles, which 
reigned among children principally and was of little importance. There have 
been isolated cases of other contagious and infections diseases, but they have at 
no time during the year taken the proportions of an epidemic. 

During the month of March there were several cases of diphtheria in the 
island of Culebra and the disease threatened to take serious proportions, but 
prompt measures were taken and it was quickly eliminated with the loss of 
only one life. 

Reports received from the health officers concerning contagious and infectious 
diseases are extremely deficient, as many of the health officers either furnish no 
data whatever for months at a time, or such data as is furnished is extremely 
defective. Repeated attempts have been made to correct this evil, but they 
have been so far useless. 

A thorough revaccination has been carried out throughout the island and 
measures taken to prevent the outbreak of any epidemic of a serious nature, 
much attention being paid to water courses and steps to avoid their contam- 
ination taken. 

VITAL STATISTICS. 

Great difficulty has been experienced in collecting truthful official data on 
which to base our yearly statistical report, which, to say the least, is very 
defective. In such cases as it has been possible to discover errors in the vital 
statistical reports monthly submitted to this office by the various municipali- 
ties they have been corrected as far as it lay in our power to do so, but there 
are grounds to suspect the presence of many errors that it has been impossible 
for this office to detect. These errors are due to many causes, namely : 

First. Many peasants in the country die without receiving medical attend- 
ance, and as the cause of their death is unknown it is set down under any 
heading. Many large municipalities have only one health officer, who can not 
properly attend to the many duties devolving upon him, and some of the most 
important are often left undone. Next, health officers in the country receive 
such small remuneration for their services and are so irregularly paid that 
they have to devote much of their time to other matters in order to make a 
living. In other towns there is often no health officer. 

Secondly. It would appear that in some of the towns the civil registrar is 
not careful in making inscriptions and is careless in the keeping of his records, 
and consequently supplies very incorrect data. Two cases of palpable care- 
lessness in this respect have recently been discovered, one from Mayaguez, 
which is an important town, and the other from Rineon. These municipalities 
were requested to send duplicates of their reports for the same month after 
having submitted the originals, and when they did so there were notable 
differences between the originals and duplicates. When attention was called 
to the fact, those municipalities were unable to correct the errors. This shows 
that either no books are kept, or, if any, that they are then kept with great 
laxity. 

It seems to be an impossibility to impress upon the municipal authorities 
the importance of keeping proper and correct records, and it would appear 
that until the health officers are appointed, paid, and entirely controlled by 
this office and all matters pertaining to sanitary statistics in the various munici- 
palities placed in the hands of this bureau, it will be impossible to rely on the 
data it receives. 

Judging from the reports received from the several municipalities there 
has been a slight increase in the mortality of the island. During the year 
1904-5 the death rate was 22.73 per 1,000, and during that of 1905-6 it has 
been 23.26, which is an increase of 0.53 per 1.000. This increase is so small 
that it does not indicate a perceptible change in the health of the island ; 
nevertheless it is enough to make us doubly alert; it is the bugle call for 
proper sanitary legislation and the rigorous enforcement of same. 

VETERINARY INSPECTION. 

During the year our veterinary inspector has inspected- 11.516 cattle and 
horses, 73 horses have been tested with mallein to ascertain the presence of 
glanders, 71 of which were ordered killed. 

In the course of his work the inspector visited and inspected, from time to 
time, all the towns of the island, taking the necessary measures to stamp out 



POETO KICO. 



187 



glanders and check the course and minimize the evil effects of other diseases 
among stock, as well as giving" farmers and cattle breeders valuable instructions 
as to the best methods of rearing and caring for their stock. Our inspector, 
who is an excellent officer and thoroughly understands his business, has done 
much good work since his appointment, but it is a matter of utter impossibility 
for one veterinary inspector to attend to the work of the entire island, and his 
activity and energy are taxed to their utmost. I would consequently recom- 
mend that provision be made to appoint three additional veterinarians for the 
work of the island. 

Much of our inspector's time has also been employed in inspecting and direct- 
ing the correction of deficiencies in stables, meat stalls, and slaughterhouses. 

PLUMBING WOKK. 

This bureau has experienced great difficulty this year in securing the services 
of a competent plumbing inspector, and we are now obliged to utilize what time 
the military plumber at Casa Blanca can spare from his regular duties to 
attend to our work. Up to recently the salary of the plumbing inspector was 
$1,200 per annum, and after the loss of the inspector who had served this office 
for five years at that salary it became quite a problem to properly fill the 
vacancy. We succeeded in obtaining the temporary services of a first-class 
man, who came down from the States in the hope that his salary would be 
raised to at least $1,500 per annum, but it was only raised to $1,300, so he 
resigned and returned north. Since his departure we have not as yet been able 
to properly fill the vacancy. 

Due to these occurrences plumbing work has , been much hampered and 
much has been left undone in that branch this year, but it is an extremely 
difficult thing to get a competent man for the position with the salary assigned 
for such services on our budget, and this causes me to repeat that in no other 
branch of the public service are salaries so mean and toward which so much 
stinginess is shown as this, notwithstanding the importance of our work. 

CHEMICAL LABOKATOBY. 

Good work has been realized by our laboratory this year. Not only has 
work been done for almost every branch of the insular and Federal govern- 
ments, but micro-biological investigations, though to a small extent, were made 
either alone or in connection with chemical analysis. Bulletin No. 3 on " Rapid 
tests for food articles and for the detection of substances generally used to 
adulterate the same," edited by the director of the laboratory, was printed and 
issued to all the health officers of the island. Inspectors have been provided 
with suitable apparatus and instructed in the method of making systematic 
and scientific inspection of all matters pertaining to the laboratory." and are 
required to make weekly reports concerning this kind of work. 

During the past year 598 samples of food were inspected, of which 222 were 
found to be of good quality, 49 inferior, 116 adulterated, 43 condemned, and 168 
unclassified. Following is a classification of the 598 samples analyzed accord- 
ing to their quality and source : 

Summary — Classification of the articles examined according to their quality. 



Nature of the article. 


Good. 


Me H A ^d er - 


Con- 
demned. 


Unclas- 
sified. 


Total. 


B utter 










3 
5 
6 
9 
1 
2 


Biscuits 








5 
6 
9 


Blood a '. 








Clothes 








Cheese b 




i 




Canned foods 




2 




Calculi 




1 
8 




Chocolate 






8 
8 
10 


Flour 


8 






Feces 






10 
2 


Fertilizers 








Fish 


1 




1 


2 


Fowl for toxicological examination 




4 
1 


Preserved fruits 






1 



a Three for Widal and three in the form of smears for microscopical : examination. E 
6 For ptomaines. 



188 



PORTO RICO. 



Summary — Classification of the articles examined according to their quality — 

Continued. 



Nature of the article. 


Good. 


Inferior. 


Adulter- 
ated. 


Con- 
demned. 


Unclas- 
sified. 


Total. 


Lard 


1 

175 
1 
4 
2 




1 

95 




1 

19 


3 


Milk 


41 
3 




330 




2 
1 


6 








5 








7 
3 
1 


9 










3 












1 






1 






1 








11 


11 


Soap 


1 








1 








58 
8 
4 

10 


5S 


Vinegar 


i 

27 
1 




7 




16 


1 
2 


37 


69 




10 


23 








Total 


222 


49 


116 


43 


168 


598 







a Lead was detected in one sample. 
- b Four were tested for the diazo reaction. 
« Eleven were examined bacteriologically. 

Classification of the articles examined according to their source. 

Samples. 

Board of health 416 

Supervisor of health for tbe poor 72 

Local board of health 42 

Custom-house 34 

Department of justice 13 

Charity institutions 12 

Insane asylum 3 

Department of interior 2 

Municipal hospital 2 

Naval station hospital 1 

Porto Rico experiment station 1 

Total 598 

The chemical laboratory is the best equipped, and most attended of any 
of the branches of health, and it responds gallantly to the care bestowed on it. 

FOOD AND HEALTH INSPECTORS. 



Our food and health inspectors have, as usual, rendered good service during 
the year, as will be appreciated from the following summary of their work : 

Quarts of milk inspected during year until May 31 42, 507 

Samples of milk taken for analysis during year until May 31 158 

Quarts of milk condemned as unwholesome and dumped 110 

Nuisances removed 158 

Fines imposed upon milk dealers for infringing the law $410 

Food stuffs condemned and destroyed as unfit for nourishment_pounds_ 168, 443 

Canned food destroyed as unserviceable cans — 4, 704 

Fines imposed by the courts for the violation of the food laws $55 

Articles the sale of which was forbidden on account of incorrect labeling: 
Wine, 546 barrels; oil, 186 cases; beer, 55 barrels. 

This was principally performed in San Juan and its suburbs. In the other 
towns of the island this work is intrusted to the health officers and their 
assistants. 

MEDICAL INSPECTORS OF THE NORTH AND SOUTH. 

These two officers have been kept extremely busy during the year rushing 
from town to town in order to stimulate the local health officers in their work, 



POETO RICO. 189 

aid theru with suggestions, enforce the orders of this bureau when the munic- 
ipalities become careless or refractory in the performance of their duties as 
far as sanitation are concerned. One of the great tasks of the medical inspect- 
ors has been to convince some of the municipalities of the imperative neces- 
sity of keeping the towns clean, of keeping the meat and milk stalls, slaughter- 
houses, and cemeteries in the proper conditions. They have also had to take 
energetic measures against certain factories situated on the banks of rivers 
to prevent them from contaminating the water of such streams by run- 
ning off lees and dumping offal into them. They were likewise actively em- 
ployed in superintending the revaccination carried on throughout the island, 
and the carrying out of measures indicated by this office necessary to check 
the spread of contagious and infectious diseases and also to minimize the 
probability of an epidemic in the island during the summer months, that being 
the period in which such diseases most frequently make their appearance in 
the Tropics. Another very important branch that comes under their super- 
vision is to see that health officers in towns where there are tobacco fac- 
tories inspect all the workmen connected with such factories, if in a healthy 
condition issue to them the necessary licenses permitting them to work, and if 
unhealthy not to issue them licenses, or withdraw license if such had previ- 
ously been issued. Also to see that such factories provide their workmen with 
suitable appliances to insure the cleanliness of the work. This inspection is 
regularly performed by the health officers once a month. On the whole the 
two medical inspectors have done good work this year. 

HOSPITALS. 

By far the great majority of hospitals in the inland towns are in a most 
wretched condition. This is principally due to the fact that many of the 
municipalities where such a state of affairs exists are too poor to maintain 
such an establishment. A correct idea of the state of the hospitals of the 
island may be obtained from the report of Mr. H. F. Dottin, which is on file 
in the governor's office. In the month of May, 1903, Mr. Dottin, then of the 
bureau of charities, by order of the director of charities visited and made a 
thorough inspection of the greater number of hospitals in the island. His 
report on the subject was full and explicit, and in virtue of the distressing 
conditions of the hospitals reported Governor Hunt assigned $4,000 from the 
governor's special fund for their immediate relief. The money was placed at 
the disposal of the bureau of health and distributed among the hospitals 
under the direction of Dr. W. F. Smith, of health, and Mr. Dottin, of charities. 
The proportionate sum for the relief of each hospital was not delivered to the 
needy municipality, but all necessary supplies were purchased and the hospi- 
tals equipped and given a good start, which was expected to be kept up by an 
effort on the part of the municipalities, but such has not been the case, and 
the hospitals are now in as bad a condition as they were before they received 
aid. 

Plans for the construction of a new municipal hospital in Santurce have 
recently been approved by this bureau. When completed, this institution will be 
one of the best of its kind in the island, for not only are the several depart- 
ments and dependencies well arranged, but the establishment will be equipped 
in accordance with all the principles of modern science. 

The construction of this institution is estimated to cost $85,000, the sum of 
$6,840 has been appropriated for its equipment, and there is an assignment 
of $3,993 for the salaries of the officers attached to the establishment. 

Besides this institution there are in San Juan the Maternity, Presbyterian, 
and the " Concepcion " hospitals, which are well attended, and, finally, the spe- 
cial hospital for the treatment of infectious and contagious diseases of women. 

The San Antonio Hospital at Mayaguez is also a well equipped and prop- 
erly managed institution and does credit to the municipality to which it 
belongs. 

The Tricoche Hospital at Ponce is anything but what it should be, but the 
municipality has recently appropriated a sum for improvements to be intro- 
duced in the establishment. 

There are besides this institution others of a private nature, such as the 
" Asilo de Damas," which is well attended, and the Episcopal Church is now 
erecting a hospital in connection with its mission. 



190 PORTO BICO. 



It is just to say that in spite of the many trials and difficulties experienced 
by this bureau during the year much good work has been done and the em- 
ployees connected with this office are worthy of praise for the faithful dis- 
charge of their duties. 
Respectfully submitted. 

R. M. Hernandez, M. D., 

Supervisor of Health. 
The Dieector of Health, Charities, and Correction, 

San Juan, P. R. 



REPORT OF THE SUPERVISOR OF CHARITIES. 

Office of Health, Charities, and Correction, 

Supervisor of Charities, Porto Rico, 

San Juan, P. R., July 1, 1906. 

Sir : I have the honor to submit, as follows, my annual report of operations 
during the fiscal year* 1905-6 on the insular charitable institutions under my 
charge, viz : The insane asylum of Porto Rico, the insular blind asylum, the 
leper colony, and the boys' and girls' charity schools. 

In the insane asylum very marked and extensive improvements have been 
made, and the institution is now sufficiently large to accommodate all the insane 
patients of Porto Rico. Unfortunately, however, the appropriation for the 
care of the indigent insane is too small to support all who apply for admis- 
sion and there are usually a score of applicants on the waiting list. During 
the present fiscal year the pay patients' wards yielded a revenue of $3,500, 
showing that patients who are able to pay are availing themselves of the 
scientific treatment at the asylum. During the year ending June 30, 1906, 
the population figures of the establishment were as follows: Admitted, 402, 
of whom 236 were women and 166 were men ; discharged, 79 ; died, 80. 

The most notable accomplishment during the present fiscal year was the 
opening of the insular asylum for the blind, at Ponce, the formal dedication 
being by the Hon. Beekman Winthrop, governor of Porto Rico, on September 23, 
1905. Details of the splendid work already done by this establishment, and 
proof of the wisdom of providing a hospital and home for the indigent blind 
of Porto Rico will be given in a more exhaustive report. In nine months the 
institution has received 173 patients. Of these 108 have been discharged, 
mostly as cured, and there are now in the asylum 64 patients under treat- 
ment. There has been but one death, that of an aged patient. The manage- 
ment has been economical, and when consideration is given to the fact that 
at the outset all the work of the asylum was of an experimental nature, re- 
sults are most encouraging. I do not hesitate to predict that within a few 
years, if proper support is accorded to the blind asylum authorities, the fame 
of the institution will be more than local. The practical experience already 
gained is exceedingly valuable. 

In the leper colony there are at present 25 patients, the highest number in 
the history of the colony. Two patients, one of whom had been under obser- 
vation for two years, and another for seven months, were discharged last month, 
the demonstration of their freedom from leprosy being absolute. These patients 
were kept isolated during their stay on Cabras Island, and hence their discharge 
involved no menace to the community at large. The general condition of the 
patients is excellent except for their leprosy. During the year 5 patients have 
been admitted and 1 has died. The expenditure of at least $2,000 for a new 
burying ground, two new cottages for patients under observation, and for very 
necessary repairs to buildings is earnestly recommended. A humane, scientific 
work, which entitles the colony to rank with the best similar establishments 
elsewhere, is being carried on. Professional visitors are warm in their praises. 
Grateful acknowledgment is made of the free microscopic examinations by Dr. 
Charles Butler, of the United States Naval Hospital at San Juan, and of cour- 
tesies shown by other friends to the unfortunate inmates of the colony. 

Conditions have not materially changed during the past fiscal year at the 
Boys' Charity School and Girls' Charity School, in Santurce. In both these 
institutions the number of inmates has increased, but there has been no corre- 



POETO RICO. 191 

sponding increase of appropriation. As a result, even the strictest economy is 
not likely to avert a deficit at the end of the new fiscal year, and industrial work 
must be curtailed instead of developed. This is to be regretted, as the most 
valuable education 'that can be given to the inmates of the charity schools is 
teaching them how to help themselves. 

In the Girls' Charity School an effort is about to be made to cooperate with 
the insular commercial agency in New York by sending to that agency samples 
of lace work, drawn work, embroidery, baskets, hats, etc., manufactured by 
the girls of this school. The superintendent of the school recommends, and I 
heartily concur with her judgment, that a large class in domestic science should 
be established in the school. At the close of the present fiscal year there are 
168 girls in the institution. During the year 46 were admitted, 38 were dis- 
charged, and 1 died. 

The Boys' Charity School continues to be an institution which falls far short 
of possible accomplishment because of lack of funds. The industrial classes 
should be enlarged, and I recommend that the manual-training class be abol- 
ished and that in its place a class in elementary plumbing be established. I am 
convinced that more practical results will be obtained by such a change. Gar- 
dening and farming should also be taught. Opportunities for using the ample 
grounds connected with the establishment are being wasted because no money is 
appropriated for the purchase of tools or the maintaining of agricultural work. 

The capacity of this institution is now taxed to its utmost. During the year 
just ended 76 boys were admitted, 71 were discharged, and 2 died. The number 
of boys in the school on June 30, 1906, was 264. 

The kindly interest manifested by Mr. Arthur F. Estabrook, of Boston, Mass., 
in the children of Porto Rico was extended to the inmates of the insular charity 
schools. To the girls' school he donated, during the year, $100 in cash ; to the 
band of the Boys' Charity School he gave $200 worth of new instruments, and 
the children of both schools were jointly entertained by him during his annual 
visit to Porto Rico. 

At the last session of the legislative assembly you did me the honor of pre- 
senting, in the form of an executive council bill, my recommendation that the 
names " Boys' Charity School " and " Girls' Charity School " be changed respec- 
tively to " Boys' Industrial Home of Porto Rico " and " Girls' Industrial Home 
of Porto Rico." My desire, as explained to you, was to eliminate the word 
" Charity," sometimes, though never properly, deemed a stigma when applied to 
indigent children who are cared for and educated by public funds. The bill 
failed of passage in the house of delegates. I have the honor to recommend 
that a similar bill be introduced in the next legislative assembly. 

Permit me, in conclusion, to thank you for your kindly and broad sympathy 
with the efforts of the bureau of charities during the past year, and to acknowl- 
edge also the support given by all the superintendents of the various institu- 
tions committed to my charge. 

Very respectfully, A. C. Haeselbarth, 

Supervisor of Charities. 

Hon. Andres Crosas, 
Director of Health, Charities, and Correction. 



REPORT OF THE SUPERVISOR OF PRISONS. 

Office of Health, Charities and Correction, 

Supervisor of Prisons, Porto Rico, 

San Juan, P. R., July 1, 1906. 
Sir: I have the honor to present my annual report on the penal establish- 
ments of the island for the fiscal year 1905-G, together with statistical informa- 
tion on the administration of these establishments ; the money spent therein 
during the said fiscal year ; the admission and discharge of prisoners ; the 
sickness of prisoners ; their terms of sentence, and personal details relating to 
them ; also a statement of the crimes for which they are serving sentences, 
and other information, all of which is set forth in Exhibits 1 to 10 inclusive, 
submitted herewith. 



192 PORTO EICO. 

PENAL ESTABLISHMENTS. 

The construction of the prison buildings is defective in many respects, except 
as regards the district jails of Ponce and Arecibo. Of these two, the latter is 
a new building, designed especially for use as a jail, and the former has been 
remodeled for the same purpose. The penitentiary, more than any other build- 
ing, requires improvement. It has a single large hall (99 by 14 meters) 
wherein it is necessary to confine all the prisoners, whatever their offenses may 
have been. The only plan of division which can be effected is to distribute 
them into squads, according to the length of their sentences, and to assign each 
squad to a separate portion of the hall. 

Since my report of July of last year there has been no change in the construc- 
tion of the prisons, except that a district jail has been built at Arecibo, and an 
upper story has been added to the penitentiary. This upper story is now used, 
for the most part, as the hospital of the penitentiary and of the district jail 
of San Juan ; it includes an operating room, dispensary, and two rooms, at 
present occupied by female prisoners and by prisoners of the San Juan jail 
awaiting trial. 

The removal of the prisoners from the Mayaguez jail to that portion of the 
building known as the " Cuartel " which is hereafter to be used as a district 
jail, has been postponed until the repairs now being made in the "Cuartel " 
shall have been completed. 

As regards the hygienic conditions, all possible measures have been adopted to 
equip the penal establishments in the proper manner, and it can be said that a 
high sanitary standard is maintained in all of them and that they are all kept 
thoroughly clean. 

It has been necessary to vacate the building in the Puerta de Tierra, formerly 
used as the district jail of San Juan. The prisoners have been sent, tempo- 
rarily, to Arecibo, and are kept in the new jail recently built for the use of that 
district. 

This fact and the insufficiency of the penitentiary for the demands made upon 
it show that it is necessary to build a new penitentiary, constructed according 
to the modern system. 

PRISONERS. 

The prisoners confined in the penitentiary aud the district jails are required 
to keep the buildings clean and freshly painted. Moreover, the inmates of the 
penitentiary are employed in tailoring, shoemaking, carpenter work, and basket 
weaving. They make clothing for all the prisoners in the insular jails and 
shoes for themselves, together with a great number of articles of furniture for 
the offices of the insular government. The carpenter work is all that can be 
desired. As a proof of the perfection of skill displayed in this work, attention 
may be invited to the silver medal granted at the recent exposition in St. Louis, 
Mo., for the furniture exhibited there. 

In addition to the work done within prison walls, the prisoners help in clean- 
ing the streets of the various municipalities in which the prisons are situated, 
and work on the insular roads. During the fiscal year 1905 and 1906 they have 
done a large amount of work on the roads, more particularly during the last 
months of the year. The number of prisoners kept at work on the roads is 
about as follows : 

From the penitentiary 100 From the Guayama jail 25 

From the San Juan jail 95 From the Arecibo jail 23 

From the Ponce jail 81 From the Aguadilla jail 20 

From the Mayaguez jail 40 

From the Humacao jail 25 409 

The number of prisoners on June 30, 1906, was less by 201 than the number 
on June 30, 1905. The admisions and discharges at the penitentiary and at the 
San Juan jail were more numerous during the past fiscal year than during the 
year 1904-5. On the other hand, additions and discharges at the jails of 
Ponce and Mayaguez were less than half of those of the previous year. More- 
over, in the jails of Humacao, Guayama, Aguadilla, and Arecibo fewer pris- 
oners have been received and discharged during the past fiscal year than during 
the year immediately preceding, as is shown by Exhibit No. 2. 



PORTO EICO. 



193 



The percentage of sickness among the inmates of the insular prisons during 
the past year has been as follows : 



Per cent. 

Penitentiary 12 

San Juan jail 5 

Ponce jail 6 

Mayaguez jail 10 



Per cent. 

Ilumacao jail 13 

Guayama jail 3 

Aguadilla jail 4 

1 



Arecibo jail 
The percentage of deaths in the cases of sickness has been as follows 



Per cent. 

Penitentiary 3 

San Juan jail 7 

Ponce jail 3 

Mayaguez jail 1 



Per cent. 

Humacao jail 2 

Guayama jail 6 

Aguadilla jail 2 

Arecibo jail 



The report of the warden of the penitentiary is submitted herewith. 
Very respectfully, M. Camunas, 

Supervisor of Prisons. 

The Director of Health, Charities, and Correction, 

San Juan, P. R. 



Exhibit No. 1. — Cost of maintenance of the penal institutions of Porto Rico, for the 

fiscal year 1905-6. 





Peniten- 
tiary. 


San Juan 
Jail. 


Ponce 
Jail. 


Mayaguez 
Jail. 


Humacao 
Jail. 


Food 


$22, 529. 47 
999. 46 


$16, 293. 46 

486.37 

818.75 

3,000.00 


$10,377.74 
148. 92 
195.96 


$4,811.87 
202. 67 
238.94 
720.00 


$6, 409. 23 

269. 98 

80.47 

720.00 


Medicines and surgical supplies 


Lighting 


Rent of buildings 




Clothing 


5, 597. 54 

2,497.04 

1, 460. 83 

295. 57 

5,101.19 

15, 507. 00 




Savings fund for prisoners discharged 
from the penitentiary 










Material for manufacturing articles for 
sale 










Tools, supplies, etc 










Incidental expenses 


2,195.85 
7,770.34 


448. 12 
5,394.00 


399.90 
5,198.00 


291.81 
4,380.00 


Salaries 




Total 


53,988.10 


30, 564. 77 


16, 564. 74 


11,571.38 


12, 151. 49 






Guayama Jail. 


Aguadilla Jail. 


Arecibo Jail. 


Total. 


Food 


$4,946.93 

174.06 

43. 88 

720.00 


$3, 248. 25 

114.82 

43.66 

720.00 


$2,300.31 

119. 92 

30. 80 

336.00 


$70,917.26 
2,516.20 
1, 452. 46 
6,216.00 
5,597.54 

2,497.04 

1, 460. 83 

295. 57 

8, 920. 26 

45, 192. 67 


Medicines and surgical supplies... 


Lighting 




Clothing 


Savings fund for prisoners discharged 
from the penitentiary 








Material for manufacturing articles for 
sale 








Tools, supplies, etc 








Incidental expenses 


75.30 
2, 460. 00 


265. 18 
2, 425. 33 


142. 91 
2,058.00 


Salaries 




Total 


8 420 17 




















' 







5. Doc. 135, 59—2- 



-13 



194 



PORTO RICO. 



Exhibit No. 2. — Number of prisoners and sick and the daily cost of food per capita in 
the penal institutions of Porto Rico, number of prisoners in custody on Jun 30, 1905, 
and number of prisoners received and discharged during the fiscal year ending June SO, 
1906. 





Peni- 
ten- 
tiary. 


San 
Juan 
Jail. 


Ponce 
Jail. 


Maya- 
guez 
Jail. 


Huma- 
cao 

Jail'. 


Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Are- 
cibo 
Jail. 


Total. 


In custody June 30, 1905 


633 
420 


402 
1,590 


291 
584 


131 
323 


176 
596 


Ill 
547 


101 

421 


28 
432 


1,933 
4,913 






Total 


1,053 
420 


2,052 
1,746 


875 
612 


454 
359 


772 
632 


658 
532 


522 
452 


460 
361 


6,846 
5,114 






In custody June 30, 1906 


633 


306 


263 


95 


140 


126 


70 


99 


1,732 




591 


455 


290 


105 


158 


118 


77 


52 


1,846 






Sick June 30, 1905 


65 
395 


21 
480 


18 
171 


13 
155 


14 

162 


5 

260 


5 

91 


3 

111 


144 




1,825 






Total 


460 


501 


189 


168 


176 


265 


96 


114 


1,969 








370 
24 
66 
76 


465 
21 
15 
24 


159 
7 

23 
18 


159 
2 
7 
11 


148 

4 

24 

20 


259 
3 
3 
3 


95 

1 

3 


110 

4 
3 


1,765 




62 


Sick June 30, 1900 :... 


142 
158 






Average cost of food per diem 
per capita : 


SO. 0988 
.1628 


$0. 0953 
.1377 


SO. 0945 
.1225 


SO. 1069 
.1195 


SO. 1050 
.1400 


SO. 1150 
.1150 


SO. 1150 
.1150 


$0. 1200 
.1200 













Exhibit No. 3. — Number of prisoners in custody at the end of each month. 



Date. 



1905 

June 30 

July 31... ....... 

August 31 

September 30. . . 

October 31 . 

November 30... 
December 31... 

1906 

January 31 

February 28 

March 31 

April 30 

May31 

June 30 



Peni- 


San 


Ponce 
Jail. 


Maya- 


ten- 


Juan 


guez 


tiary. 


Jail. 


Jail. 


633 


462 


291 


131 


628 


473 


298 


146 


623 


514 


296 


159 


632 


490 


338 


157 


629 


476 


335 


146 


582 


503 


311 


116 


588 


468 


286 


107 


587 


458 


282 


97 


580 


418 


249 


98 


555 


439 


255 


104 


537 


444 


285 


112 


539 


296 


284 


114 


633 


306 


263 


95 



Huma- 
cao 
Jail 



160 
169 
172 
175 
135 



170 
154 
129 
151 
148 
140 



Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Areci- 
boJail. 


Ill 


101 


28 


105 


95 


35 


109 


84 


25 


127 


67 


26 


112 


66 


36 


107 


51 


32 


103 


73 


38 


119 


80 


44 


124 


73 


54 


126 


84 


49 


132 


92 


62 


128 


86 


108 


126 


70 


99 



Total. 



1,933 
1,960 
1,970 
2,006 
1,972 
1,877 
1,798 



1,837 
1,750 
1,741 
1,815 
1,703 
1,732 



Exhibit No. 4. — Number of sick at the end of each month. 



Date. 


Peni- 
ten- 
tiary. 


San 
Juan 
Jail. 


Ponce 
Jail. 


Maya- 
guez 
Jail. 


Huma- 
cao 
Jail. 


Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Areci- 
boJail. 


Total. 


1905. 
June 30 


65 
61 
68 
68 
81 
68 
86 

77 
94 
76 
92 
69 
66 


21 
17 
20 
26 
24 
30 
24 

23 
24 
32 
26 
15 
15 


18 
17 
28 
27 
14 
11 
15 

16 
12 
16 
20 
20 
23 


13 
17 
19 
16 
15 
10 
16 

10 
9 

11 
6 

11 
7 


14 
22 
24 
20 
19 
26 
28 

28 
28 
6 
6 
21 
24 


5 
7 
7 
9 
3 

4 

2 
1 
2 
1 
2 
3 


5 

7 
4 
5 
5 
4 
5 

4 
4 
1 


3 

5 
4 

3 
3 
2 

2 
5 
3 
4 
4 
4 


144 


July 31 


153 




174 




171 


October 31 


164 




152 




180 


1906. 


165 


February 28 


177 


March 31 


147 


April 30 


155 


May31 


142 


June 30 


142 








12 


5 


6 


10 


13 


3 


4 


7 









PORTO RICO. 



195 



Exhibit No. 5. — Deaths. 



Date. 


Peni- 
ten- 
tiary. 


San 
Juan 
Jail. 


Ponce 
Jail. 


Maya- 
guez 
Jail. 


Huma- 
cao 
Jail. 


Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Areci- 
L-oJail. 


Total. 


1905. 
July 




1 
3 








I 1 






2 




2 


1 


i 


1 


1 




9 










2 
3 
4 

2 
1 


1 




1 

1 
1 


1 






5 










4 




3 

3 

2 
5 
4 
2 
3 


1 










9 


1906. 


1 






6 




3 










6 














5 




3 

2 














7 




1 


1 










6 












3 




















Total 


24 


21 


7 


2 


4 


3 


1 




62 






Percentage of deaths to to- 
tal number in confinement 


2.27 


1.02 


0.80 


0.44 


0.51 


0.45 


0.19 













Exhibit No. 6. — Causes of death. 



Cause of death. 


Peni- | San 
ten- Juan 
tiary. ! Jail. 


Ponce 
Jail. 


Maya- 

guez 

Jail. 


Huma- 
cao 
Jail. 


Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Are- 
cibo 
Jail 


Total. 


Pulmonary tuberculosis 


13 
5 

1 
1 

1 
2 


1 


1 


1 


1 


2 


1 




20 
5 






1 












2 














1 


Pericarditis of rheumatic 
















1 




5 
1 
3 
2 
3 
1 
1 
1 


1 












8 














1 


















3 
















2 








1 








4 














1 
















1 
















1 




3 

1 




2 








5 












1 






1 










1 






1 






1 




1 j 3 












4 


Total 
















24 1 21 7 


2 


4 


3 


1 




62 



Exhibit No. 7. — Terms oj 


sentence cf prisoners 


in confinement June SO, 1906. 




Peni- 
ten- 
tiary. 


San 
Juan 
Jail. 


Ponce 
Jail. 


Maya- 
guez 
Jail. 


Huma- 
cao 
Jail. 


Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Are- 
cibo 
Jail. 


Total. 


Awaiting trial 




26 
280 


53 
210 


9 

86 


16 

124 


8 
118 


5 
65 


22 

77 


139 




633 


1,593 






Total 


633 


306 


263 


95 


140 


126 


70 


99 


1 732 






6 months or less 




176 
17 


86 

29 
76 
11 
2 
3 
1 
2 


50 

9 
20 
4 
1 
1 
1 


64 

13 
21 
9 
4 
3 
3 
2 


40 

5 
29 
23 
4 
4 
5 
4 
2 
1 


45 

1 

10 
3 
1 
2 
1 


40 

24 

10 

1 

1 

1 


501 


Over 6 months and less than 




98 


1 year and less than 2 

3 years and less than 4 

4 years and less than 5 

5 years and less than 6 

6 years and less than 8 


40 
66 
62 
20 
81 
64 
35 
141 


68 
17 

1 



274 
134 
76 
33 
94 
72 


8 years and less than 10 


1 
1 




38 


10 years and less than 15.... 








2 


145 


15 years and less than 20 


36 
32 








36 


20 vears and less than 30 
















32 


30 years and over 








1 
2 








15 


Life 


33 
9 








1 






36 


Condemned to death 












9 




















Total 


633 280 


210 


86 


124 


118 


65 


77 


1,593 











196 POKTO KICO. 

Exhibit No. 8. — Classification of prisoners in confinement June SO, 1906. 





Peni- 
ten- 
tiary. 


San 
Juan 
Jail. 


Ponce 
Jail. 


Maya- 
guez 
Jail. 


Huma- 
cao 

Jail. 


Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Areci- 
bo Jail. 


Total. 


Sex: 


633 


293 
13 


239 

24 


91 
4 


136 
4 


117 
9 


70 


95 
4 


1,674 




58 








Total 


633 


306 


263 


95 


140 


126 


70 


99 


1,732 




Conjugal relations: 


477 

152 

4 


280 

24 

2 


215 

47 

1 


76 
18 

1 


113 

25 

2 


94 
32 


53 
17 


68 

29 

2 


1,376 




344 


Widowed 


12 










Total 


633 


306 


263 


95 


140 


126 


70 


99 


1,732 






Color: 

White 


429 
122 

82 


196 
80 
30 


88 
146 
29 


50 
36 
9 


51 
64 
25 


61 
50 
15 


48 
19 
3 


37 

54 

8 


960 


Mixed 


571 


Negro 


201 






Total 


633 


306 

289 

17 


263 


95 


140 


126 


70 


99 


1,732 






Age: 

Over 18 years of age 
Under 18 years of age . . . 


613 
20 


232 
31 


81 
14 


126 
14 


116 
10 


59 

-11 


90 
9 


1,606 
126 


Total 


633 


306 


263 


95 


140 


126 


70 


99 


1,732 






Education: 

Know how to read 


6 

183 
444 


4 
119 
183 


1 
63 

199 










4 
24 
71 


15 


Know how to read and 


22 
73 


40 
100 


36 
90 


16 
54 


503 


Do not know how to 
read and write 


1,214 


Total 


633 


306 


263 


95 


140 


126 


70 


99 


1,732 






Occupation: 

Soldiers 


1 

431 

103 

42 

7 

33 

3 

11 

2 
















1 


Laborers 


236 
28 
12 
3 
6 
2 
3 

16 


131 

60 
16 
3 
5 


60 
23 

7 

5 


87 
35 
4 
4 
2 
1 


81 
19 
9 
1 
1 
3 
3 

9 


39 

11 

3 

1 

4 


63 
19 
3 

3 


1,128 


Artisans 


298 


Tradesmen 


96 


Merchants 


19 


Agriculturists 


59 


Property owners 


9 


Clerks in general 


8 
40 




1 
11 


4 
7 


30 


Employed in the dis- 
charge of domestic du- 
ties 




6 
1 


91 


Artists 


1 


















Total 


633 


306 


263 


95 


140 


126 


70 


99 


1,732 






Nationality: 

Natives of United States 
of America 




3 

297 

3 

1 


259 
1 
2 


1 

94 


140 


1 
124 


70 


1 
98 


6 


Natives of Porto Rico . . 


626 

5 


1,708 
9 


Englishmen 






1 






4 




1 
1 










1 
















1 


Natives of South Amer- 




1 












1 






2 












2 




















Total 


633 


306 


263 


95 


140 


126 


70 


99 


1,732 







POETO KICO. 197 

Exhibit No. 9. — Age of prisoners in confinement June 30, 1906. 





Peni- 
ten- 

. tiary. 


San 
Juan 
Jail. 


Ponce 
Jail. 


Maya- 
guez 
Jail. 


Huma- 
cao 
Jail. 


Guay- 
ama 
Jail. 


Agua- 
dilla 
Jail. 


Areci- 
bo Jail. 


Total. 


15 years and under 


2 
105 
139 

157 
91 
63 
32 
22 
5 
9 
5 
2 


23 
87 
80 
57 
26 
19 
2 
3 
2 
3 
3 


18 
62 
57 
52 
21 
30 
10 
8 
3 
2 


7 
28 
26 
12 
5 
6 
2 
5 

3 

1 


1 
29 
33 
30 
26 
7 
4 
6 
3 

1 


3 
34 
36 
29 
7 
7 
4 
2 
2 
1 


9 
22 
15 

8 
10 

4 

1 

1 


7 
17 
18 
17 
11 
14 
6 
4 
5 


70 
384 
404 
362 
197 
150 
61 
50 
21 
18 


From 16 to 21 years 


From 22 to 25 years . . . 


From 26 to 30 years 


From 31 to 35 years . . 


From 36 to 40 years . 


From 41 to 45 years.. 


From 46 to 50 years.. . 


From 51 to 55 years.. 


From 56 to 60 years 


From 61 to 65 years 






10 


From 66 to 70 years . . . 


1 






3 


Over 70 years 


1 


1 












2 


Total 

1 












633 306 


263 


95 


140 


126 


' 70 


99 


1,732 



Exhibit No. 10. — Offenses of prisoners in confinement June 30, 1906. 

Murder, manslaughter, and attempts at same 272 

Adultery, bigamy, rape, and crimes against morals, with or without vio- 
lence, and attempts at same _, 136 

Mayhem, assault and battery, assault, etc 275 

Burglary, robbery, larceny, and attempts at same 728 

Breach of the peace, abusive language, malicious mischief 95 

Arson g 

Malversation of public funds 2 

Counterfeiting 2 

Embezzlement, forgery, false, personation, fraud 101 

Crimes against public justice, extortion, perjurv 30 

Violation of the election law * 28 

Violation of the internal-revenue law 11 

Other offenses 44 

Total _ 1,732 



Exhibit H. 

REPORT OF THE INSULAR POLICE. 

Headquarters Insular Police, Porto Rico, 

San Jtian, P. R., July 1, 1906. 

Sir : I have the honor to transmit herewith a report of the insular 
police for the year from July 1, 1905, to June 30, 1906, 

The insular police department has undergone no change, except as 
to the office of the paymaster, which was abolished and merged into 
the department, consolidating the paymasters of all the insular 
departments. The office of captain and paymaster ceased to exist 
as a consequent of the abolition of the disbursing office. 

The force was increased numerically on different occasions during 
the year, the 550 being augmented by 100 men. This does not include 
1 chief, 1 assistant chief, 6 captains, 7 first lieutenants, 8 second 
lieutenants, and 95 noncommissioned officers. The number of posts, 
subposts, and detachments was unaltered. The organization in its 
entirety, with the exception of the chief and the assistant chief, is 
composed of natives. 

The continued efforts to increase the potentiality of the organiza- 
tion has met with partial success, financial conditions precluding the 
possibility of securing the increase and advantages authorized by the 
legislature at its last regular session. The measure as passed called 
for the increasing of the force by 200, making a total of 850 men ; the 
adding of another police district with the necessary number of com- 
missioned and noncommissioned officers, and an increase in the sala- 
ries of officers and men, as well as additional pay for reenlistment. 
Upon attempting to put this law into operation, it was learned that 
from a financial standpoint the law could not be put into effect. 
Advantage, however, was taken of the legislature sitting in extraordi- 
nary session to prevent the conflict which had arisen, and while this 
report was in preparation the lawmakers, after making several 
amendments in the provisions calling for an increase in men and 
salaries, repassed the bill. 

The law as signed by the governor provides for the division of 
the island into 7 police districts instead of 6, increasing the number 
of officers to 7 captains, 8 first lieutenants, and 8 second lieutenants, 
but the number of sergeants, 20, and corporals, 75, remains unchanged. 

The annual salaries of all officers and men were increased. 

The guardsmen or policemen will also receive $2 for each reenlist- 
ment of two years. 

The police force will be composed of 700 guardsmen, but authority 
is conferred upon the governor to increase this number when the 
emergency justifies such augmentation. 

198 



POETO RICO. 199 

A strike which reached the most alarming proportions known in 
this island occurred in the early part of the fiscal 3^ear. I was on a 
leave of absence at the time and the assistant chief had full command. 
The strike, was begun by the longshoremen, who demanded of the 
New York and Porto Rico Steamship Company 25 cents an hour in- 
stead of the 15 cents which they were receiving. The company re- 
fused to accede to the demands. A detachment of police were 
installed on the pier to protect the company's rights. 

The truckmen subsequently joined the strikers, but they had no 
particular grievance except that of sympathy. 

The steamship people were not entriely paralized, as they brought 
outside laborers, who worked under the immediate protection of the 
police. The want of transportation facilities forced the merchants 
to organize a truck company to carry merchandise from the wharves 
to their places of business. This had its moral effect, and the truck- 
men went back to work. The other strikers could not withstand the 
hardships resulting from the Avant of money to buy the necessities of 
life and manifested a desire to return to work at the customary wage. 
But just then the labor agitators stepped in and aroused the strikers 
to a pitch of indignation and defiance, which culminated in violence. 

The strike had lasted over a month and on July 31 the conditions 
assumed a serious aspect. The truckmen had again gone on a strike. 
On the afternoon of that day they attempted to interfere with a 
private truckman. The police were called. The strikers held their 
ground in defiance of the police. A clash occurred and several were 
hurt, but they finally dispersed, a number of arrests being made. 
August 1 saw the climax of the situation. The mob became turbulent 
and ungovernable. Throughout the day there were encounters be- 
tween the lawless crowd and the police." The police used force but 
the gangs retaliated in the same measure. They used stones, bottles, 
revolvers, and refuse as weapons against the police. When night fell 
upon the city it was found that all electric lights had been destroyed 
and absolute darkness enveloped all. The unruly element intrenched 
themselves upon the housetops, from where they kept up a continual 
attack on the police. It was useless to dislodge them. The police 
were withdrawn, and, as all the fury was against the police only, they 
became pacified by their retirement. Early next morning the police 
were stationed on the roofs to prevent a repetition of the scenes of 
the night before. This move brought matters to a standstill, and 
several days after the strikers abandoned their cause. The strike 
cost the loss of one life and a number of wounded. 

Sugar plantation laborers Avent again on a strike this year, only 
that it was confined to the Arecibo district. The strike lasted about 
two months, but the strikers were finally compelled to cede without 
having gained one point. .Higher wages and less hours was the 
slogan. At the beginning their methods were pacific, but when the 
sugar planters comprehended the situation which confronted them 
and began to bring in raw hands who had never earned such a high 
salary, and who in a short time worked as well as the old hands, they 
changed their tactics. Several attacks were made upon these men, 
and attempts were made to disable the machinery and set fire to cane 
fields on several plantations. The police were ever on the alert and 
frustrated many attempts to ruin property and attack the workmen 
by putting the guilty parties promptly in jail. Everywhere police 



200 



PORTO RICO. 



officers were put in command as an evidence of the determination to 
prevent violence by the strikers. The strikers were able to make 
a long stand, because of a fund which had been sent them from 
the United States, but when this became exhausted and hopes of 
replenishment were in vain, linked with the more serious problem 
that any number of men were available to displace them, the strikers 
realized that further struggle was useless and the strike was called off. 

If the number of arrests is any criterion on the moral conditions or 
betterment of a community, then such a state has been reached in the 
island. The total number of arrests for last year, 1904-5, was 61,867, 
while this year, 1905-6, we have only 56,561, or 5,306 arrests less than 
the year previous. 

The arrests were for the following crimes: 



Murder 

Perjury 

Attempted murder 

Attempted suicide 2 

Robbery 

Rape 

Abduction 

Seduction 

Bigamy _' 

Crime against nature 

Arson 

Burglary 

Falsification of documents 

Grand larceny 



Stealing cattle 

Receiving stolen property 

Extortion 

Abuse of confidence 

Requisitory 



49 

23 

33 

556 

121 



Smuggling and fraud of gov- 
ernment funds 

Resisting the police 

Assault 

Gambling 

Drunkenness k 

Disorderly conduct 

Fighting 

Cruelty to animals 

Carrying arms without license __ 

Firing arms 

Vagrancy 

Prostitution 

Violation of municipal ordi- 
nances 

Violation of sanitary laws 

Fugitives 

Other offenses 



160 

251 

3, 423 

4,429 

373 

8,358 

3,002 

6, 577 

3,139 

52 

2 

81 

8, 251 

8,011 

89 

6, 5S4 



Total 56,561 



The insular police commission, composed of Dr. Ricardo Hernan- 
dez, Mr. James TL Harrison, and Dr. Manuel Quevedo Baez, is a 
very potent factor in the workings of the police. These gentlemen 
have been so assiduous and sincere in all matters coming before them 
that they have enhanced their record and reconfirmed the confidence 
which they have always inspired. Their cooperation with the chiefs 
have been productive of much good. I am constrained to give ex- 
pression to my feelings of gratitude for the services rendered to the 
insular police. 

The entire organization has worked efficiently, zealously, and faith- 
fully as heretofore, and I feel that thanks are due to the officers and 
men for the manner in which they worked to maintain the reputation 
achieved by this department. 
Very repectfully, 

T. Hamill, 
Chief of the Insular Police. 
Hon. Beekman Winthrop, 

Governor of Porto Rico, San Juan, P. R. 

O 



LB N '! 



